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CHAPTER-VII

COMMITTEE ON HOME AFFAIRS

I. Composition of the Committee

7. Department-related Parliamentary Standing Committees are constituted under Rule 268 of the Rules of Procedure for Conduct of Business in the Rajya Sabha. Each of the Standing Committees is related to the Ministries/Departments as specified in the Third Schedule to the Rules of Procedure. As per Part-I of the Third Schedule, there are eight such Committees under the administrative control of Rajya Sabha Secretariat. 16 such Committees, as mentioned in Part-II of the Schedule are with the Lok Sabha Secretariat. These Committees are constituted by the respective Presiding Officers of the two Houses of Parliament. The Committee on Home Affairs, (2005), one of such Committees, was constituted on 5th August, 2005 with 10 Members from Rajya Sabha and 21 from Lok Sabha. The Committee was reconstituted w.e.f. 5th August, 2006. The Committee has two Ministries under his jurisdiction, namely, the Ministry of Home Affairs and the Ministry of Development of North Eastern Region (DONER).

7.2 The Committee consisted of the following Members: —

COMMITTEE ON HOME AFFAIRS (Constituted on 5 August 2005)

1. Smt. Sushma Swaraj — Chairperson

RAJYA SABHA 2. Shri V. Narayanasamy 3. Shri Rishang Keishing 4. Shri R.K. Dhawan 5. Shri S.S. Ahluwalia 6. Shri N. Jothi 7. Shri Janeshwar Mishra 8. Shri Satish Chandra Misra 3 9. Shri Sitaram Yechury 4 10. Shri Sanjay Raut

LOK SABHA 11. Shri L.K. Advani 12. Shri S.K. Bwiswmuthiary 13. Shri C.K. Chandrappan 14. Shri Biren Singh Engti 15. Shri Rahul Gandhi 16. Shri Tapir Gao 17. Shri T.K. Hamza 18. Shri Naveen Jindal 19. Shri Ajit Jogi 20. Prof. K.M. Kader Mohideen 21. Shri Tek Lal Mahato 22. Shri Sachin Pilot 23. Shri Ashok Kumar Pradhan 24. Prof. M. Ramadass 25. Shri G. Karunakara Reddy 26. Shri Baju Ban Riyan 27. Dr. H.T. Sangliana 28. Choudhary Bijendra Singh 29. Shri Brij Bhushan Sharan Singh 30. Shri Braja Kishore Tripathy

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31. Shri Beni Prasad Verma

COMMITTEE ON HOME AFFAIRS (Re-constituted on 5 August 2006)

1. Smt. Sushma Swaraj — Chairperson

RAJYA SABHA 2. Shri V. Narayanasamy 3. Shri Rishang Keishing 4. Shri R.K. Dhawan 5. Shri S.S. Ahluwalia 6. Shri Janeshwar Mishra 7. Shri Prasanta Chatterjee 8. Shri N. Jothi 9. Shri Satish Chandra Misra 10. Shri Sanjay Raut

LOK SABHA 11. Shri L.K. Advani 12. Dr. Rattan Singh Ajnala 13. Shri Ilyas Azmi 14. Km. Mamata Banerjee 15. Smt. Sangeeta Kumari Singh Deo 16. Shri Biren Singh Engti 17. Shri Tapir Gao 18. Shri T.K. Hamza 19. Shri Raghunath Jha 20. Shri Naveen Jindal 21. Shri Ajit Jogi 22. Prof. K.M. Kader Mohideen 23. Shri Ram Chandra Paswan 24. Shri Sachin Pilot 25. Shri Ashok Kumar Pradhan 26. Shri G. Karunakara Reddy ∗ 27. Shri M. Rajamohan Reddy 28. Shri Baju Ban Riyan 29. Choudhary Bijendra Singh 30. Shri Brij Bhushan Sharan Singh 31. Shri Mohan Singh

II. Subjects selected for examination

5 7.3.0 The Committee on Home Affairs had the following subjects for examination during the year:- Sl. Ministry/Department Subject No. 1. Ministry of Home Affairs Administration of Union Territories 2. Ministry of Home Affairs/ Ministry of Internal Security and Economic and DoNER Infrastructural Development in NER.

7.4.0 In addition to the above subjects, Hon’ble Chairman, Rajya Sabha also referred the following Bills to the Committee for examination:-

Sl. Date of reference Name of the Bill No.

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1. 03.08.2006 The Sashastra Seema Bal Bill, 2006

2. 22.12.2006 The Foreign Contribution (Regulation) Bill, 2006

7.4.1 Besides, the Committee had also inherited the Protection of Human Rights (Amendment) Bill, 2005 and the Communal Violence (Prevention, Control and Rehabilitation of Victims) Bill, 2005 from its predecessor.

III. Constitution of Sub-Committees of the Committee on Home Affairs

7.5 During 2006, no sub-Committee was constituted.

IV. Review of work done

(a) Sittings of the Committee

7.6 Statement showing the dates of sittings of the Committee held during the period under review, the duration of the sittings, the number of Members present and the subjects discussed are given in Annexure VII.

7.7 The Committee had not interacted with any foreign delegation during the period under review.

(b) Sitting of Sub-Committees

7.8 During the period under review no sittings of Sub-Committees were held, as no Sub-Committees were constituted.

7.9 Voluminous notes/documents were received from the concerned Ministries/Departments on the subjects/Bills and examined by the Committee.

7.10 A large number of memoranda were received from the non-officials on different subjects/Bills examined by the Committee. Those Memoranda were sent to the concerned Ministries for their comments.

(d) Study Visits

7.11 The Committee had undertaken a study visit to Arunachal Pradesh, Manipur, Nagaland and Meghalaya from 1 to 7 February 2006 to assess the Internal Security and Economic and Infrastructural Development in North-Eastern Region.

7.12 The Committee did not constitute study groups to make on-the-spot study of local offices, institutions, projects etc. during the period reported upon. (e) Evidences Taken

7.13 Eighteen (18) evidences were taken during the period under review and verbatim record of each of the sittings were kept.

V. Reports Presented

(a) Reports

7.14 During 2006, the Committee presented/laid the following Reports to the Council/House:—

Sl. Report No. and Dates of Subject No. Presentation/Laying Rajya Sabha Lok Sabha 118 The Protection of Human Rights (Amendment) Bill, 1. 09.03.2006 09.03.2006 2005. 119 Demands for Grants (2006-2007) of Ministry of 2. 19.05.2006 19.05.2006 Home Affairs. 120 Demands for Grants (2006-2007) of Ministry of 3. 19.05.2006 19.05.2006 DoNER Examination of Administration of Union Territories

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121 (Andaman & Nicobar Islands, Pondicherry & 4. 02.08.2006 02.08.2006 Chandigarh). 122 The Communal Violence (Prevention, Control and 5. 13.12.2006 13.12.2006 Rehabilitation of Victims) Bill, 2005.

(b) Action Taken Reports

7.15 The Committee did not present any Action Taken Report on the Action Taken by the Government on the Recommendations contained in its Reports.

No action in view of the fact stated in 7.15 above.

7.16 Minutes of sittings of the Committee on Home Affairs relating to all the Reports were presented/laid to the Council/House along with the relevant Reports.

VI. Summary of Recommendations

(a) 118th Report (The Protection of Human Rights (Amendment) Bill, 2005)

7.17 The Committee recommended that in the proposed amendment, the words “Chief Justice of the Supreme Court” may be substituted by the words “Chief Justice of India”.

7.18 The Committee was of the view that an express provision needed to be incorporated in the amendment to clear the apprehensions and doubts that the Chairperson may tend to misuse the power in making excessive delegation. The Committee, therefore, recommended that in sub-section (4) of Section 3 of the Principal Act, the words “except judicial functions” may be added after the words “such powers and discharge such functions of the Commission”.

7.19 The Committee recommended that the amendment proposed in sub-section (2) of Section 4 of the principal Act may be dropped in the light of the deliberations held on this issue.

7.20 The Committee was of the view that the State Governments while so opting for the Chairperson and/ or Member (s), may tend to by-pass the Selection Committee. The Committee, therefore, recommended that the following proviso may be added after the proposed amendment i.e., insertion of a new sub-section (6) :

“Provided that every appointment made under this sub-section shall be made after obtaining the recommendation of the Committee referred to in sub-section (1) of Section 22 in respect of the State for which common Chairperson or Member or both, as the case may be, is proposed to be appointed.”

7.21 The Committee while reiterating its observation made in respect of the proposed amendment to sub-section (2) of Section 4 of the principal Act, recommended that the amendment proposed to sub-section (2) of Section 22 of the principal Act may be dropped.

7.22 Clause I, the Enacting Formula and the Title were adopted with some changes which were of consequential or drafting in nature, namely substitution of the calendar and republic years, “2005” and Fifty-sixth” by “2006” and “Fifty- seventh”, respectively.

(b) 119th Report {The Demands for Grants (2006-2007) of the Ministry of Home Affairs} Revamping of Civil Defence 7.23 Civil Defence is an important and integral part of the defence of the country. Particularly during times of war Civil Defence Organisation has a vital role in guarding and protecting the people and supporting civil administration. The Committee had appreciated that NDMA proposed to have relook at the scheme of Revamping of Civil Defence and integrate it into the National Disaster Management. The Committee agreed that civil defence is the right organisation to be involved in Disaster Management. It however felt that unduly long time had been taken for revamping the Civil Defence System. The Committee therefore recommended that the issue may be got cleared from the NDMA Committee and the Non-Plan Expenditure Committee and the final plan of action may be prepared for revamping the Civil Defence in the shortest possible time schedule. The Committee also recommended that funds for the scheme may be allocated at RE 2006-07 stage and the

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scheme may be implemented during the current financial year.

Modernisation of Fire Services 7.24 The Committee regretted that as in the case of the scheme of Revamping of Civil Defence, the scheme of Modernisation of Fire Services too could not take off last year inspite of a provision of Rs. 134.26 crore in BE 2005-06. The Committee took a serious view of the fact that new schemes were initiated, allocations were made and they did not take off due to procedural and administrative delays. Although fire services in the country are primarily the responsibility of the States/Municipal Committees/ Corporations, the services across the country were abysmally below the International Standards. The Committee desired that Modernisation of Fire services which is a comprehensive scheme should be equipped with modern technology, gadgets and infrastructure. The Committee while expressing concern over delay of one year in implementing the scheme urged upon the Government to get the scheme cleared in a definite time frame from NDMA and Planning Commission and make necessary allocation at RE 2006-07 stage. The Committee also urged upon the Ministry to implement the scheme during the current fiscal year.

Modernisation of Prisons 7.25 The Committee expressed its serious concern over the laxity of some States in implementing the scheme. Improving the conditions of prisons had been a widely discussed topic in the public domain. There is no two opinion that prisons in the country need to be humanized. Infrastructure and living conditions inside the prisons need to be improved. The present scheme of the Government, if implemented in the right earnest, would go a long way in improving the conditions, if not completely change the face of the Prisons. The Committee would therefore like the Ministry of Home Affairs to coordinate closely with the State Governments and impress upon them the need for timely and effective implementation of the Scheme. The Committee recommended that the additional allocation for the purpose may be made at the RE stage. The Committee agreed that the scheme needs to be extended for two years, as desired by the Ministry so that the full amount of Rs.1800 crore was utilised.

Bodoland Territorial Council

7.26 The allocation of Rs. 100 crore made for the development of BTC is a separate package announced by the Government of India as per the agreement. But the Committee was not in agreement with the practice of making this provision out of the allocation made to NLCPR. NLCPR being an accumulation of unspent balance of the 10% earmarked in the Budget by various Ministries/Departments, is primarily a development fund; using it for other schemes is a negation of the rationale behind the creation of the Fund. NLCPR has a very limited reserve and if this Rs. 100 crore is provided out of this Fund for BTC, the fund would get depleted. The Committee felt that the NLCPR being a fund for development of NE States, should be used for the purpose for which it was created. The Ministry of Home Affairs might therefore decide on allocation of Rs.100 crore for BTC out of their resources.

Pensionary benefits to CPO personnel 7.27 The Committee was at a loss to understand as to why the Ministry of Finance was not acceding to the request of the Ministry of Home Affairs for continuing the same pensionary benefits to Central Police Organisations (CPOs) as was applicable to the Army personnel. The duties performed by most of the CPOs’ personnel are, more or less, similar to that of the Army. The Committee, therefore, endorsed the proposal of the Ministry of Home Affairs for continuance of the pensionary benefits to the personnel of Central Police Organisations (CPOs) as in case of the Army personnel. The Committee recommended that the Ministry of Home Affairs may once again take up the matter with the Ministry of Finance and that Ministry may favourably consider the proposal at the earliest.

Relief and Rehabilitation of Kashmiri Migrants 7.28 The Committee regretted to observe that the Government was not serious in fully utilising the amount allocated at BE stage for rehabilitation of J & K migrants. When Central Government had made the allocation, State like J & K should have come forward with the schemes for utilising the money, particularly in view of its being a terrorist savaged State. The Committee further observed that the State Government should not have any hesitation in formulating the schemes for which Central Government was prepared to allocate necessary funds. The Committee, therefore, reiterated its recommendation made in its 112th Report (para 8.3, page 15) on Demands for Grants (2005-06) that the full amount allocated for the rehabilitation schemes for the J&K migrants should be utilised. The Committee also urged upon the Government to impress upon the J & K Government to come forward with schemes in time and implement them without delay.

Multipurpose National Identity Cards Scheme

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7.29 ‘The importance of the Mulit-purpose National Identity Card Scheme (MNICs) in a country like India with thousands of kilometres of porous International Border and with the large presence of illegal immigrants posing a grave threat to the internal security, need not be overemphasized. The Committee was, however, disappointed at the pace of implementation of the pilot project. If the pilot project itself was taking such a long time, preparation of MNICs for all the citizens might take several more years. The Committee, therefore, urged upon the Government to accord high priority to the Scheme and accelerate completion of the Pilot Project within a specific time frame rather than dragging it endlessly. The Committee was confident that based on the experience gathered in the implementation of the Pilot Scheme for the last two and a half years, the government would be in a position to evolve time bound action plan for implementation of the scheme at the national level’.

Naxalism 7.30 The Committee expressed its serious concern over the growing influence of naxalites all over the country and felt that it was no more a law and order problem and posed a threat to internal security as was evident from their declaration of Compact Revolutionary Zone or Red Corridor from Nepal to Tamil Nadu, almost a third of the country’s total area.

7.31 In that context, it found pertinent to mention the Prime Minister’s observation in a meeting of the CMs of Naxal affected States held on 13th April, 2006 in New Delhi, that:

“... It would not be an exaggeration to say that the problem of naxalism is the single biggest internal security challenge ever faced by our country...”

7.32 There was, therefore, an urgent need to curb the naxal activities with an iron hand and simultaneously address the associated economic problem. There needs to be more seriousness in implementing the programmes for developing the infrastructure in the affected districts; to improve the economic conditions of the citizens; and winning back the confidence of those, who are alienated from the mainstream of the society and aligning with the naxals. The Committee recounted that in its earlier reports, it had impressed upon the Ministry to adopt a holistic approach in tackling the naxal menace. The Committee would once again like to reiterate its recommendation to the effect.

Modernisation of Police Forces

7.33 The Committee was constrained to learn that the scheme of such a magnitude and importance had not been implemented in the Union Territories though it has been implemented in the States. The Committee felt that the scheme should have been taken up on a priority basis and the proposed allocation could have been made a part of the budgetary provision of 2006-07, if the necessary processing was done well in time. The Committee hoped that necessary allocation would be made at RE stage in 2006-07 and the scheme would take off in the current financial year.

Delhi Police 7.34 The Committee while appreciating the efforts being made by Delhi Police to improve its functioning and also to improve its image, felt that there was still a lot of room for improvement. The Committee recommended that Delhi Police should conduct a survey on the perception of the people about it. Senior officers should undertake surprise and disguised visits to police stations and deploy decoy complainants and observe the behaviors of the personnel there. It would give Delhi Police important inputs about effectiveness of its various steps at the ground level, trying to improve its functioning and its interface with the public.

Crime against Women

7.35 The way crime is perpetrated against women in Delhi and the feeling that women were not safe and secure in the National Capital Region did not give a positive picture about the National Capital Territory (NCT) of Delhi to the rest of the world. This perception would have a negative impact on the women tourists visiting India. The Committee felt that the crime against women seems to have acquired serious proportions and was anguished to note that all efforts made in this regard by Delhi Police have failed to bring substantial change in the situation. It was legally as well as morally binding upon the law enforcement agency to make sincere efforts in nabbing the perpetrators of crime against women and see to it that punishment is handed down in such a way as to set an example to deter potential offenders. The Committee was of the view that the lackluster style of functioning of the police force is greatly responsible for not instilling a sense of security and confidence amongst the women in Delhi. The Committee, therefore, recommended that adequate women police personnel should be deployed in police stations and at other places considered vulnerable for women. Investigation of cases of crime against

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women should be completed within a definite time frame so that conviction of the delinquent is secured without losing time. The Committee also recommended that Delhi Police should launch a drive to educate women in self-defence through posters and pamphlets and also launch awareness campaigns amongst women about their proactive approach in dealing with the cases of atrocities committed against them. The Committee further recommended that Delhi Police should address this issue with utmost sincerity and honesty by adopting all necessary measures.

7.36 The Committee was also given to understand that a large number of women are working in Call Centers in NCR and travel long distance from their place of residence to their place of work at odd hours. Cases of rapes and atrocities on such women employees had been reported from certain places. The Committee, therefore, desired that Delhi Police should take all precautionary measures to ensure that such incidents do not happen in NCT of Delhi. The Committee also felt that there is a need for gender sensitization among Delhi Police personnel and all efforts may be made for ensuring attitudinal change amongst Delhi Police personnel.

Housing

7.37 The Committee felt that proper housing facilities for police personnel particularly at the level of Constable and Head Constable would go a long way in improving their efficiency particularly their attitude and behaviour. The Committee expressed its deep anguish over the laxity shown by Delhi Police in improving the satisfaction level in the housing of Delhi Police personnel particularly at lower level. Inspite of serious concern expressed by the Committee in the earlier years and recommendations made for improvement, there was no perceptible change in the situation. Housing was one of the basic requirements, particularly for people working in an organisation like Delhi Police and it should be made available to the extent possible. The Committee also expressed its concern that inspite of facing problem from several fronts in meeting the housing requirement they had not been able to set up the Delhi Police Housing Corporation. Housing Corporation would be an important step in the direction of solving the problem and the Committee strongly recommended that it might be established during the current financial year. The allocation made for housing in the current year i.e. Rs.55 crore might be fully utilized in the construction and purchase of housing units. The Committee was happy to learn that Rs. 100 crore were going to be made available every year for housing of Delhi Police personnel from out of the new scheme likely to be launched i.e. Modernisation of Police Forces in UTs. The allocation could not be made for this scheme at BE 2006-07 due to procedural delay and the Committee had already made its observation in para 16.4 supra. Since the scheme had already been approved, the Committee desired that allocation might be made for the scheme and Delhi Police might finalise its proposal for utilisation of the amount likely to be made available to it.

Non-lapsable Central Pool of Resources (NLCPR)

7.38 The Committee observed that NLCPR being a developmental corpus, it should be used for various development projects of the region but was constrained to note that special packages were also met from out of this fund. Any allocation from it for some other purpose was impermissible. The Committee, therefore, recommended that Government should stop such practice and make separate allocation for special packages.

7.39 The Committee found that very important Ministries/Departments from the point of view of NER such as Ministries/Departments of Science & Technology, Biotechnology and Space in the list of exempted Ministries/Departments. These Ministries/Departments could play an important role in the development of NER. Keeping in view the forest cover of the region, the bio-diversity development could be given a boost through the involvement of Ministry of Science & Technology and Department of Biotechnology. Likewise, the Department of Space, which had given matching contribution along with NEC for development of NESAC, Shillong, could also contribute significantly for the development of NER. These exempted Ministries/Departments should be reviewed by the Government and considered for the purpose of spending ten percent of their GBS for the development of NER. The Committee hoped that the assurance given by the Secretary would be fulfilled at the earliest.

7.40 The Committee did not agree with the Ministry of Finance of its plan to enable the NE States to raise loans from the open market. The Committee was of the firm view that these States would not be able to raise loans from the market. The prevailing atmosphere in the NE region too was not conducive for private investment. The Committee therefore, reiterates its earlier observation that non-budgeting of loan component of Central assistance to States is not a viable proposition for the special category States of NER and recommended that the budgeting of loan component may be provided.

North Eastern Council (NEC)

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7.41 The Committee noted with concern that the Tenth Plan outlay for NEC had not been adhered to till 2006-07 even though it was the terminal year of the plan. The final allocation made in each year putting together left a gap of Rs. 988.5 cr. Had this amount been allocated, all the projects could have been completed? The explanation of the Secretary, NEC that a host of projects were languishing from scarcity of funds could be understood from the fact that the expenditure on the projects had been around hundred percent all the years. The Committee failed to understand why the Planning Commission made outlay for the Plan period and did not adhere to it while allocating it every year. This was not the right approach, particularly in view of requirement of funds for the development of NER. The Committee, therefore, strongly recommended that the amount required for completion of the projects in the current financial year, which was also a terminal year for Tenth Plan, might be made at RE stage. 7.42 The Committee was also given to understand that there was no proper mechanism to ensure monitoring the quality in the execution of the project of NEC. The Committee, therefore, recommended that the monitoring mechanism might be strengthened to ensure quality in the execution of the projects.

Advocacy and Publicity

7.43 The Committee appreciated the positive attitude of the States in coming up with proposals for capacity enhancement and hoped that this approach would be maintained all through in implementing the schemes successfully. The Committee also noted that under the Advocacy and Publicity, more than ninety five percent expenditure of the allocation had been made and the Ministry had also indicated that several activities had been taken up at various places in the country. The Committee, however, felt that more needed to be done under this scheme until the entire region was brought into the mainstream of the economy. More innovative programmes might be undertaken and the Ministry might approach the Ministry of Finance for higher allocations, if it was needed.

Externally Aided Projects (EAPs)

7.44 The externally aided projects, if implemented in the right earnest, would go a long way in improving the infrastructure in the North East. The final report on phase I of the NE Urban Development Project may be processed and examined at the earliest and the project proposals may be prepared soon. The Ministry should make all efforts to ensure that Phase I goes through this year. As regards the NE State Road Project, the Committee desired that the submission of draft Report be completed at the earliest and efforts be made to see that the project takes off this year. The study of NE Trade and Investment Creation Initiative may be got completed at the earliest so that other processes could be taken up. In regard to the World Bank study on natural resources, water & environment nexus for development and growth, efforts may be made to complete the study on all aspects positively in this financial year.

Vision NER: 2020

7.45 The Committee was of the view that the vision document being a 15 year perspective plan for integrated and holistic development of NER through the process of participatory planning, must provide for concerted efforts to tap the potential and strengths of the region, remove weaknesses and be prepared in consultation with all the stakeholders. Sports and textiles are two sectors that have tremendous potential of growth in the NE region. Prowess of Sports Persons of the region has been manifested at various national and international levels. The need is for providing the ideal environment and infrastructure for allowing this talent to grow. Textiles are one of the most important thrust areas not only to earn foreign exchange but also to provide employment to a large number of people particularly to the rural artisans. Thus sports and textiles are two major strength of the region and need to be given special thrust in the Document. The Committee also recommended that establishment of a national level sports school and an institute like National Institute of Fashion Technology in NER should be included in the Vision Document 2020. Civil Aviation in NER

7.46 The Committee was not happy with the way the issue of air connectivity in the North-Eastern Region had been handled, particularly by the Planning Commission. It was surprising that the Planning Commission had taken more than five years to process the proposals for airports at Passighat & Teju in Arunachal Pradesh and even after five years, no decision had been taken and ‘in-principle’ approval had not been given. The Committee observed that such delays were one of the factors for which the North-Eastern Region has remained backward. The real potential and the strengths available in the region have not been properly tapped and air connectivity is no exception to this. Such casual approach and bureaucratic delays only create heart burning amongst the people of the region. When the Committee visited North East early this year, several people who met the Committee sought to know as to how long they have to wait for implementation of these projects. The Committee took strong note of this nonchalant approach and recommended that the Planning Commission should clear the projects without further delay to enable the Ministry of Civil Aviation and the State Governments to implement the projects at the earliest.

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7.47 The Committee appreciated the problem involved in this regard and also in regard to the demand for pilots and engineers from the private sector. However, the problem of air connectivity in the North-Eastern Region could not be ignored just because of this. As a short-term measure, the Government might take up the matter with the Indian Air Force to provide some air force pilots and engineers until a permanent arrangement is made. For solving the problem on a long-term basis, the Ministry might discuss the issue of setting up a Pilot Training Institute at Lilabari with Ministry of Civil Aviation at the earliest. Necessary allocation might also be made for starting the Institute at the Revised Estimate stage. The Government might also include this in the ‘Vision Document 2020’.

Health Care in NER

7.48 The Committee found it quite unusual that even after fifty-nine years of independence there are States which did not have even one medical college and that the demand for the same was quite justified. Setting up of a medical college, besides providing trained medical graduates, would also bring with it better medical facilities and health infrastructure. The States without medical colleges would all the more require such facilities besides getting medical graduates. The Committee strongly recommended that at least one medical college in each of the States of Arunachal Pradesh, Mizoram and Nagaland might be set up. That should be considered on priority basis and allocation may be made at RE stage. That might also be included in the Vision Document, 2020.

Ropeway at Tawang

7.49 The Committee was dismayed at the extraordinary delay in the commencement of work on the project inaugurated by no less than the President of India. Such delays and procrastination breeds resentment amongst the people of the region against the administration. The Committee, therefore, urged upon the Government to seek early sanction for the project and complete the same in the shortest possible time frame.

National Bamboo Mission

7.50 The Committee agreed that in view of the conducive climatic condition and heavy rainfall, the Bamboo Mission would boost the plantation of bamboo in the region, which would certainly help the sagging economy of the NE states. The Committee wanted early implementation of National Bamboo Mission in the region so that the Ministry of DoNER and NEC could accelerate projects under the Mission. The Ministry and NEC might, therefore, took up the matter with the Ministry of Agriculture for early approval of the Mission.

(d) 121st Report (Examination of “Administration of Union Territories”)

Administrative Setup

7.51 The Committee was of the view that as A&N Islands, which was headed by a Lieutenant Governor, had no public representative to supervise, to consider or to monitor the functions of the Government apart from the Lieutenant Governor, it could at least had a Pradesh Council. It was also of the view that Panchayati Raj could not be a substitute for the Pradesh Council. PRIs would look after the execution of policies and programmes under Part IX (Article 243 G) of the Constitution, whereas the Pradesh Council would review and supervise the functioning of the Government.

7.52 The Committee was also given to understand that there were problems of increasing unemployment and urbanization, law and order, bootlegging. The Committee felt that these were directly connected with development. When the State is administered by officers only, there is no scope for monitoring and overseeing the working of the Administration and ultimately development is affected. When development is not taking place, people suffer leading to increase in crime rate. These issues can be solved only by people’s participation in governance through their elected representatives.

7.53 The Committee, during its visit to Andaman & Nicobar Islands, noted the immensity of tsunami devastation and the problem of shortage of staff. Had there been a Legislative Assembly the relief operation would have been addressed in a better manner. The Committee was, therefore, of the firm view that there was a strong justification for setting up of a Legislative Assembly for the Andaman & Nicobar Islands. It therefore, recommended to the Government to take necessary steps in this direction.

7.54 Until a final decision is taken for setting up a Legislative Assembly, some kind of monitoring mechanism was required. Therefore, the Committee recommended that the Pradesh Council may be revived immediately. This is all the more necessary because the administration of the entire UT of Andaman & Nicobar Islands could not be left to the Panchayat Raj Institutions. These were only local self-governing institutions and they could not be a substitute for a legislative set up.

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7.55 The Committee also took note of the fact that consequent upon the Seventy Third and Seventy- fourth Amendments to the Constitution, though the participation of the people in planning & execution of developmental works in the UT started at the grass-root level, the process of delegation of powers & functions to PRIs had been very slow. The subjects apportioned to them were limited and even in those areas the transfer had not been complete. The Committee, therefore, recommended that local bodies might be delegated more powers and functions without further delay so that they could meet the people’s aspirations. Further the Committee recommended that those bodies should be supported by adequate staff, finance and other logistics.

Sociological Set up

7.56 The Committee took note of the fact that there were five primitive tribes in the whole of Andaman & Nicobar Islands. They fulfilled the essential characteristics of tribals. The Committee understood the compulsion of the Government in integrating the tribal communities into the mainstream of the society. This is a sociological process, which needs to be addressed through the process of time only. However, the Committee noted that the tribes were living amidst reserved forest land. These tribals, might at some point of time in future come out and mix up with the civilised society. Therefore, some provision had to be made so that when they enter the civilised world, they should be given an opportunity to use the forest land and do the farming. While preserving the uniqueness of the tribals, the process of integration into the mainstream of the society may continue as per requirement at a particular point of time.

Administrative Issues

7.57 The Committee felt that the proposal of the Island Administration for creation of new district and sub-divisions would help in delegation and decentralization of powers necessary for quick decision-making. The Committee recommended that the demand of the Administration might be examined on priority. The new District and sub-divisions would help the local administration in catering to the needs of people, in an efficient manner and in the quickest possible time.

Need for helicopters

7.58 The Committee understood the gigantic task of the administration of 572 islands spread over 800 kms. They need sufficient vehicles for transportation and aerial route is the only available means for inter-island transportation. The Committee, therefore, recommended that the proposal for acquisition of two helicopters might be approved at the earliest. That would help the administration in providing necessary help to the people besides making the helicopters available for inter-island transport on a regular basis.

Personnel Administration

7.59 The Committee noted the difficulty being faced by the Administration due to shortage of staff in providing relief & rehabilitation and completion of other ongoing projects. Such a large number of vacancies for such a small administrative setup was a matter of concern particularly when relief and rehabilitation work was to be done on war footing. The Committee recommended that the Finance Ministry’s blanket ban on recruitment for the UT should be reconsidered. The Government should also look into the issue of delay in filling up of vacancies and take steps to expedite the same.

Tourism in the Islands

7.60 The Committee desired that the objectives set in the Tenth Five-Year Plan such as ecofriendly & environmentally sustainable tourism, development of new tourism activities/products and marketing the Islands as eco-tourism destination, etc. should be achieved. The schemes taken up needed to be implemented on a priority basis for achieving the objectives as this would generate employment besides strengthening tourism. The Committee also recommended that 2006-2007 being the terminal year of the Tenth Five-Year Plan, all-out efforts might be made so that no activity taken up remains incomplete.

7.61 The Committee desired that the Government should address both the short-term and medium-term objectives and take necessary steps for taking up and completion of all the proposals in a definite timeframe.

7.62 Andaman & Nicobar Islands are the ultimate unexplored destination of India’s tourism. Once they are open to tourists there is no doubt that the islands would become one of the tourism attractions in the world. Despite having very good tourism potential, India has not tapped it well. A&N Islands were a good example of this. There are many countries in the world which thrive on tourism and India is not able to make use of the potential. The Committee was however happy to note that things are moving in the right direction with the opening up of more islands in A&N Islands. By opening up islands,

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more investment would flow in and tourism will develop which ultimately leads to economic growth of the islands and the country. The Committee desired that the proposal of opening more islands for tourism might be got cleared from the Cabinet at the earliest.

Air connectivity

7.63 The vast potential of international tourists can only be tapped if there is world class airport and other infrastructure. Air connectivity and tourism are inter-linked and inter-dependent. A&N Islands, being remotely and strategically located, need better air connectivity both domestic and international for better tourist arrivals. The Committee recommended that the Ministry should take steps to declare Vir Savarkar Airport as an International Airport as a step towards projecting A & N Islands as an attractive tourist destination. The Committee also recommended that to begin with the Government could make the stopover for Chennai-Bangkok & Chennai-Singapore flights at the Islands. It also urges upon the Administration to complete the expansion work of the airport expeditiously, thus making it capable for operation of wide-bodied aircraft. The Committee was also of the view that the other proposals in the strategy for post-tsunami tourism promotion, if implemented, would go a long way in the promotion and strengthening of tourism in Andaman & Nicobar Islands, particularly the proposal relating to introduction of flights from various cities to Port Blair would go a long way in attracting tourists from different destinations of the country to the Islands. The Committee desired that the above proposals may be taken up on top priority.

Agriculture and Fishery

7.64 The Committee was of the view that considering the vast potential of fisheries, shrimp, crab and prawn, concerted efforts need be made to explore the potential by diversifying fishing to Shrimp, Crab and Prawn culture. The issue of identification of suitable areas for coastal shrimp culture may be pursued with Central Institute of Brackishwater Aquaculture (CIBA). That was necessary in view of scarcity of freshwater in the Islands. The Committee noted that land available in the Islands was very less and its optimum use should be made. Besides diversifying farming practices, efforts should also be made to increase productivity. Efforts being made to utilise vacant hilly land for plantation, spices, crops, etc., might be intensified as these are eco-friendly and they grow naturally. Similarly, diversification of agriculture by encouraging plantation of cash crops such as cashew nuts, spices, and coconut in the Islands might prove to be a panacea for improving the economic condition of the farmers and the tribals living in the region.

Statehood to Pondicherry

7.65 The Committee took note of the views expressed by a section of the society in Pondicherry and felt that the sentiments of the people and the people’s elected representatives could not be ignored. The overwhelming view of all of them was in favour of Statehood to the Union Territory of Pondicherry with Special Category status. The Committee felt that the aspirations of the people have to be respected. The Committee took due note of the views of the Ministry that it would not be a viable State economically. But the Committee could not be oblivious to the fact that when Goa graduated into a State, there were apprehensions that Goa might not sustain as a State because of its weak financial base. But, Goa had proved it otherwise. Further, Pondicherry had a Legislative Assembly with elected representatives.

7.66 The Committee was also given to understand that Pondicherry Government appointed a Committee to go into its viability as a State and the then Chief Secretary of Pondicherry had submitted the Report; the Report was examined and it was agreed, in principle, by the Government that it would bring forward a Bill in the Parliament to grant Special Category Status to Pondicherry. However, that proposal was shelved.

7.67 Looking at the practical point of view, the Committee was of the view that Pondicherry, as a Union Territory, was a big handicap for the Chief Minister to function. Most of the administrative powers were vested in the Lieutenant-Governor and files were cleared by him.

7.68 Taking into account all these factors, the Committee was of the view that the issue of Statehood to Pondicherry needed to be considered in a holistic manner. The Committee, therefore recommended that Government may consider granting Statehood to Pondicherry with Special Category Status.

B-II Category Status to Pondicherry

7.69 The city of Pondicherry, which is also the capital of the UT of Pondicherry has been undergoing a rapid transformation. It has all the characteristics of a developed urban agglomeration. The Committee took note of the fact that the population of urban agglomeration of Pondicherry exceeded 5.05 lakhs as per the Census of 2001. The rapid growth of administration, industrialization, educational institutions; the population of urban agglomeration exceeding five lakhs; the floating population of about one lakh per day, justify the grant of B II status to Pondicherry. The Committee was also given to understand that Port Blair and Panaji were granted B II status, even though their population was less than that of

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Pondicherry. The Committee expressed its concern over the discriminatory attitude shown towards Pondicherry. When Port Blair and Panaji had been granted B II status, the Committee could not buy the argument given by the Government in respect of Pondicherry. B II status, besides increasing HRA to Government employees would also enhance the status of the city. The city would be able to get urban development schemes and more opportunities for development. The Committee therefore strongly recommended that Government might grant B II status to Pondicherry city for the purpose of payment of HRA. The Committee urged upon the Government that the relaxation made in the case of the cities of Port Blair and Goa in this regard may also be extended to Pondicherry so that the officials of the Central/UT Government are adequately compensated for their expenditure on housing.

Recognition of Scheduled Tribes in Pondicherry

7.70 The Committee expressed its concern that even though the UT Administration of Pondicherry had been recommending for recognition of the Scheduled Tribes, the Registrar General of India had not taken any positive decision so far. His views on five criteria were not pragmatic and hence might be dispensed with. The Committee also noted that the above mentioned tribes existed in UT of Pondicherry even before its independence in 1954, as per the reports of Backward Classes Commission of Pondicherry. The Committee was of the view that RGI was procrastinating the matter. Keeping in view the existence of Scheduled Tribes as identified by the Government of Pondicherry, Backward classes commission and the Ethnographic study of Dr. Subramniyan Naidu, the Committee recommended notification by Government of the five Scheduled Tribes identified by the UT Administration of Pondicherry in terms of Articles 342 read with Article 366 (25) of the Constitution.

Election to Panchayati Raj Institutions

7.71 The Committee expressed its deep concern over the fact that in spite of the Panchayati Raj Institutions (PRIs) having been granted constitutional status, and under Articles 243 (K) and (L) of the Constitution regular elections are required to be held to the panchayats every five years, elections thereto had not been held in Pondicherry for the last 30 years. In this connection, the Committee took note of the constitutional provision under Article 243 E (3). The Committee took strong exception to the non-compliance of the constitutional obligation. The Committee was happy to learn that the order conducting elections to Panchayati Raj Institutions had been issued recently.

Perspective Plan for Tourism Development

7.72 The Committee felt that in view of the historical significance and geographical location, Pondicherry has the potential to develop into a good tourist destination. The Committee appreciated the efforts being made by the Pondicherry Government in making it as an ideal tourist destination. Airports are an important ingredient for growth of tourism and in that direction the Committee recognizes the necessity of Pondicherry and Karaikal airports. The Committee recommended that the Central Government should make all efforts for early operationalisation of the Pondicherry Airport and establishing of Karaikal Airport. The Committee also recommended that the development of Pondicherry and Karaikal Ports and Art and Craft Village in Murungapakkam might be taken up and completed at the earliest as these would give good infrastrucutral support required for tourism. Construction of Star Hotels might also be taken up and the development of Medical Tourism might be emphasized.

Agriculture & Irrigation

7.73 The Committee expressed its concern over the fast declining net area sown and low agricultural productivity in the last ten years. Productivity remaining static, land degradation, poor soil management and excessive exploitation of water resources indicate the poor health of agriculture sector. The proposal of the UT of Pondicherry to open Uzhavar Udhaviyagams (Farmers’ Help Centres) was a path-breaking solution to the ills ailing the farm sector. The Committee was happy to learn that the plan had been implemented and felt that it should be pursued in the right perspective.

Fishery Development

7.74 The Committee was of the view that early action was needed to bring the people belonging to agricultural and fishermen communities affected by Tsunami, back to normalcy. Some rehabilitation measures had already been taken. That time sufficient infrastructure was in place so that they could start leading normal life. The Committee desired that the comprehensive plan for modernizing fishing activities initiated by the Government might be implemented at the earliest. For promotion of shrimp culture clearance of Aquaculture Authority might be obtained at the earliest. Identification of cultivable land might be completed soon so that shrimp culture could be developed at the earliest.

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Rehabilitation and Reconstruction in Andaman & Nicobar Islands

7.75 The tsunami tidal waves had caused widespread devastation in the Islands resulting in loss of human life as well as livestock besides loss of property. The Committee felt that considering the magnitude of destruction of life and property, whatever rehabilitation that had been provided would not match the loss caused by the natural calamity. But the relief provided could mitigate the suffering though the scares might not be removed permanently. However, the Government should not leave any stone unturned to ensure early rehabilitation of the affected people and to undertake reconstruction process to ensure that they start their normal life at the earliest. The Committee understood that the Government had taken up several relief measures. In regard to construction of permanent houses, the Committee felt that the permanent shelters should be at locations which are high on ground near the earlier habitations as the livelihood of the people requires them to continue residing there. Similarly, while constructing the houses, use of local material such as bamboo, wood, etc., should be preferred as they are earthquake-resistant and give better protection from sun. The Committee also took note of the fact that some people, who met the Committee during its visit, desired that money may be provided to their families so that they can construct their houses themselves. This was a better proposition because it would have engaged the families in the reconstruction work till the completion of the construction. The Government might, therefore, consider providing them financial help besides other required material to enable the families engage themselves in the reconstruction work.

7.76 The Committee had noted that revival package for small traders consisted of waiver of loans and interest thereon, etc. The Committee recommended that the Government may consider increasing the package of Rs. 57.15 crore further. It also recommended that the Government may consider providing interest-free fresh loans for at least two years to enable them to start their business afresh. Though the Government had given compensation for loss of agricultural crops which is now Rs. 22,231 per hectare, that was a pittance considering the fact that agricultural land had become saline and uncultivable and barren. It could no longer be used for any agricultural activities and even grass would not grow. Therefore, the Government should consider providing some package for permanent rehabilitation of the farmers whose agricultural land is no longer useful. The package might also contain providing assistance for business or employment. 7.77 The Committee felt that the request of the people in the islands for employment to at least one person in each affected family needed to be considered. A one-time creation of employment opportunities would give permanent relief to the families. Besides that, filling up of 3000 vacant posts would also cover a large number of people. The Committee, therefore, recommended that the Government may consider these proposals immediately and take decisions thereon.

Rehabilitation and Reconstruction in Pondicherry 7.78 The Committee noted that about 800 hectares of agricultural land as well as crops were affected by the tidal waves in Pondicherry. Much of the land might remain permanently unfit for farming. The relief given might not give permanent compensation to the affected people. In all the cases of permanent loss of land, the Committee suggested that the Government may consider raising the compensation appropriately.

7.79 After Tsunami, many farmers had been severely affected with many children getting orphaned. Though Government had provided relief package and rehabilitation, it might also consider providing permanent compensation in the form of reservation in employment to such victims. This was all the more necessary in the case of orphaned children.

7.80 In regard to construction of permanent houses, the Committee expressed its concern that out of 10, 061 houses, only 341 houses had been completed so far and it felt that way it was going to take a long time for completing all the houses. The Committee recommended that the pace of construction might be increased and all the houses may be completed within a definite time-frame. Land acquisition for construction of houses may be completed at the earliest so that construction may start at the earliest. 7.81 The World Bank aided project was an appreciable effort of the international agency. Government might monitor the project so that targets were achieved within the given time-frame.

Legislature for Chandigarh

7.82 The Committee noted the view of the Home Secretary that the present arrangement was working satisfactorily. However, when the Committee visited Chandigarh, various political leaders and general public informed that there was no forum to ventilate their grievances. The Committee was also constrained to learn that it is very difficult for the general public to meet the Administrator and that they felt that the present arrangement is not able to solve their problems. The Committee was of the view that the Municipal Corporation cannot solve all the problems of the people and the Advisory Council cannot help things to the extent people want their aspirations to be fulfilled. Thus, there needed to be some mechanism by which people have better access to the administration and which can address and redress their grievances. Such mechanism, besides

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solving the problems of the people, would also fulfil their aspirations. Therefore, keeping in view the aspirations of the people’s representatives and the general public at large, the Committee recommended that some kind of arrangement should be put in place in the UT of Chandigarh which should be easily accessible to the public and which could effectively and adequately redress their grievances.

Metropolitan Planning Committee

7.83 The Committee noted that the Metropolitan Planning Committee could go a long way in solving the problems of the people of Chandigarh and fulfilling their aspirations. Even though the Metropolitan Planning Committee was not the ultimate solution to the elected legislative body, it could, to a large extent, address the problems of the masses. The Committee suggested that suitable legislation might be brought in at the earliest so that steps may be initiated for setting up of the Metropolitan Planning Committee.

Advisory Council to Administrator

7.84 The Committee understood that infrequent meetings of the Advisory Council to Administrator might be causing problems in redressing the grievances of the people. In the absence of a legislative body, at least, other bodies such as the Advisory Council should be given the necessary teeth to address the people’s grievances. The Committee agreed with the Home Secretary that the Council should meet more frequently. The Committee, therefore, suggested that necessary steps might be taken in that direction to ensure that the Council meets more frequently. The Committee also agreed with the view of the Home Secretary that members of the Advisory Council should be adequately empowered. It recommended that the Ministry of Home Affairs should take necessary steps to redefine the powers and functions of the members of the Advisory Council and steps may also be taken to give more powers to the Council as such. As regards the suggestion of Home Secretary that the Council needed to be broad-based, the Committee had not received any concrete proposal from the Ministry. The Committee, however, felt that the issue needed to be deliberated upon and steps taken in this direction too.

Municipal Corporation of Chandigarh

7.85 The Committee was constrained to learn from the Mayor and Councillors of Municipal Corporation of Chandigarh that it had more responsibilities with limited authority and financial resources. The Committee had noted the MCC’s request for a share of 23 per cent of the tax revenue. The Committee was of the view that a municipal body functions closest to the people and needs to solve problems at the quickest possible time. For this purpose, it required sufficient resources. The Committee recommended that the Union Ministry of Home Affairs might discuss the issue with the Mayor and Councillors of MCC on its requirement of resources for a better upkeep of the city. Steps might be taken for early implementation of the Second Delhi Finance Commission recommendations for devolution of 17 per cent share of tax revenue until the Third Delhi Finance Commission takes a decision on the proposed devolution of 23 per cent tax revenue.

7.86 The Committee understood that the Zila Parishad and the Panchayati Raj Institutions (PRIs) in 18 villages would come to an end should the jurisdiction of Municipal Corporation of Chandigarh be extended to these villages. And in the absence of any demand from the 18 villages for extension of jurisdiction of the MCC into their areas and the orientation of MCC being urban, these villages might lose their rural identity without entailing any benefits and urban taxation of the municipality may add to their woes. The Committee, therefore, recommended that the rural identity of the 18 villages might not be disturbed.

Scheduled Caste Certificates

7.87 The Committee was constrained to note that such an important issue had been kept unresolved for so long and the people belonging to the SC community had to suffer. Such issues needed to be attended to without delay. The Committee trusted that Home Secretary would stick to the assurance made before the Committee and the issue would be resolved immediately.

Career Prospects & Other Grievances of Government Teachers in the UT

7.88 The Committee gathered that the Chandigarh Administration was either ignorant of or non-responsive to the problems and issues of Government Teachers. Such inept handling of their problem would demoralise them. The Committee recommended that the problems faced by the teachers may be addressed properly.

Air, Rail and Road Transport for Chandigarh

7.89 The Committee recommended that considering the growing importance of the Chandigarh city, the Government should explore the possibility of upgrading the Civil Airport to an International Airport and make it twenty-four hours

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airport. The railway service might also be further improved keeping in view the requirement of the city and the region.

Building bye-laws

7.90 The Committee felt that the situation that had arisen in Chandigarh was more or less similar to the situation that arose in Delhi in the recent past. The Committee took note of the serious situation that arose in Delhi when Courts passed orders for demolition/sealing of unauthorized constructions in Delhi leading to a public outburst as a large number of buildings/houses were found to be affected by the said drive. Consequently, the Central Government had to step in to prevent the situation from further worsening and Parliament enacting a special legislation for the purpose. To avoid such a situation in Chandigarh where too alteration/additions in houses had been made on a large scale, the Committee felt that the Government should bring about a practical solution to the problem by having a re-look at the building bye-laws of Chandigarh, which were quite old and also keeping in view the needs of expanding families. Government might also in this context consider giving a one time relaxation to the building bye-laws in Chandigarh.

(e) 122nd Report (The Communal Violence (Prevention, Control and Rehabilitation of victims) Bill, 2005

7.91 The Committee considered the alternative terms for “Communal Violence” like ‘social violence’ ‘mass violence’ and ‘sectarian violence’.

7.92 The Committee felt that the words ‘communal violence’ were well understood by every one. For the purpose of this Bill, a violence might be called communal violence if it threatens unity, integrity, secular fabric and internal security of the country. The Bill took care of mass violence, violence between ethnic groups, religious communities (both inter and intra) and different castes. The Committee, therefore, decided that the words ‘communal violence’ might be retained.

7.93 The Committee took note of the drafting error as pointed out by one of the witnesses in clause 2(1)(b) viz. that the reference to sub clause (i) of clause (c) of sub-section (1) of section 3 should read as ‘sub-section (1) of Section 3’. The Committee recommended that in sub-clause (1) (b) of clause 2, the words “sub-clause (i) of clause (c) of” may be deleted. 7.94 The Committee took note of the proposal made by the Home Secretary for amending Clause 2 (1) (l). The Committee agreed that the Schedule actually lists the sections which prescribe the punishment and not the offence. The Committee agreed that sub-clause (1) (l) of Clause 2 may read as under:

“Scheduled offence” means an offence punishable under the sections specified in the Schedule.”

The Committee agreed with the view that making death and destruction of property sine qua non for notification would be very restrictive. There might be a situation where a single death might not have taken place but a large number of people are grievously hurt. Such a situation was not covered under this clause.The Committee, therefore, recommended that sub-clause (1) (a) of clause 3 might be amended as under:

‘in such manner and on such a scale which involves the use of criminal force or violence against any group, caste or community, resulting in grievous hurt, loss of life, or extensive damage or destruction of property.’

7.95 The Committee agreed to the suggestion that the word ‘danger’ be substituted by ‘threat’ and ‘may’ by ‘shall’ in clause 3 (1) (c), and recommended these amendments in the clause.

7.96 The Committee recommended that a provision might be made in the proviso to sub-clause (2) of clause 3 to the effect a notification issued under sub-clause (1) shall not in any case be extended beyond six months. If, however, the situation warranted declaration of an area to be communally disturbed, beyond that period, the State Government might issue a fresh notification by following the procedure prescribed in sub-clause (1).

7.97 The Committee was of the view that there was a need to amend clause 5 (1) by adding the words “or he has received an information” after the words ‘has reason to believe’. The Committee recommended that clause 5 (1) might be amended accordingly.

7.98 The Committee took note of the suggestion that in sub-clause (3), the amount of fine should be mentioned. It apprehended that under the existing provision of sub-clause (3), an offender might get away with fine only. The Committee,

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therefore, recommended that the words “or with fine or with both” might be substituted by the words “and with fine”

7.99 The Committee took note of the omission pointed out by the Home Secretary and recommended addition of the following new sub-clause (3) in clause 6 as under: “Whoever contravenes the provisions of an order made under this section, shall be punished with imprisonment for a term which may extend to three years and shall also be liable to fine”.

7.100 The Committee agreed with the suggestion of deleting the words ‘whether such person has a licence to keep such arms, ammunition, explosives, corrosive substance, or not’ in Clause 7(1), as this provision is likely to be misused and the citizens may be harassed. The Home Secretary endorsed the suggestion. The Committee, therefore, recommended that the words ‘whether such person has a licence to keep such arms, ammunition, explosives, corrosive substance, or not’ in sub- clause (1) of clause 7 may be deleted.

7.101 The Committee felt that the suggestion of substituting the words ‘Sub-Inspector’ by the words ‘Deputy Superintendent of Police’ may not be practicable. The Committee, however, felt that the power to search, detain and seize arms etc. in communally disturbed area should be exercised by an officer not below the rank of Inspector of Police. The Committee, therefore, recommended that the word “Sub-Inspector” may be substituted by the word “Inspector”.

7.102 The Committee felt that the words ‘public utterances of cries’ in sub-clause (1) (e) were vague and inapt. ‘Incitement’ is an appropriate word. However, the Committee was of the view that incitement should be related to singing of songs and playing of music as well. The Committee, accordingly, recommended that sub-clause (1) (e) of clause 9 may be amended as under: “the public utterances, singing of songs and playing of music which cause incitement”.

7.103 The Committee held detailed discussion on the implication of this clause and its likely misuse in its present form. The Committee felt that the very purpose of deleting reference to unlicenced arms in clause 7(1) may be defeated if clause 12 is allowed to remain in its present form. In order to bring clause 12 in consonance with clause 7(1), as amended by the Committee, it recommended that the words ‘is found to be in possession of or carrying’ may substitute the words ‘has in his possession’ in clause 12.

7.104 The Committee agreed with the view that the expression ‘any person who knowing or having reasonable cause to believe…’ is a loose formulation which can be misused. The Committee, therefore, recommends that after the words ‘having reasonable cause to believe’, the words ‘from the circumstances’ may be inserted.

7.105 The Committee agreed that the words ‘goods transport vehicle’ were very restrictive and did not include other vehicles. The Committee felt that there was a need to bring all the vehicles under the ambit of this clause. The Committee also took note of the explanation of the Secretary, Legislative Department that in the Motor Vehicles Act, 1988 there was only the definition of ‘transport vehicle’ and not ‘vehicle’. Taking into consideration the explanation given by the Legislative Secretary, the Committee recommended that the word ‘goods’ might be deleted from the clause and marginal heading thereto.

7.106 The Committee also took note of the Home Secretary’s submission that the Government propose to add the words ‘or arms, explosives or corrosive substance’ after the words ‘rules made thereunder’. The Committee agreed with the suggestion and recommended that the amendment may be carried out.

7.107 The Committee took note of the fact that the offences for which punishment was provided in clause 17 (1) become non-cognizable if the punishment was only one year imprisonment. The Committee felt that the offences needed to be made cognizable and for this purpose, the punishment would have to be enhanced to three years imprisonment. By making the quantum of punishment to three years, there would be uniformity in clause 17 and clause 19. Further, if that amendment was not made in clause 17, then clause 19 becomes redundant. The Committee, therefore, recommended that the words “one year” might be substituted by the words “three years” in sub-clause (1) of clause 17.

7.108 The Committee considered the Government’s proposal. It also took note of the fact that that was the only provision in the Bill which prescribed a minimum punishment.

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7.109 The Committee felt that the minimum punishment of imprisonment as proposed to be reduced by the Government to three years was sufficient to work as a deterrent. The Committee, therefore, recommended that the word ‘five’ in the proviso to sub-clause (2) of clause 19 might be substituted by the word “three”.

7.110 The Committee felt that the Executive Magistrate would not have as much independence as the Judicial Magistrate. Moreover, Executive Magistrate was directly accountable to the Government. Therefore, the Committee recommended that the words ‘or Executive Magistrate’ in sub-clause (3) of clause 20 might be deleted.

7.111 The Committee, however, felt that a Law Officer also should be associated with the Review Committee. Therefore, the Committee recommended that Government might bring suitable amendment in sub-clause (1) of clause 22 for the purpose of associating a law officer of the State, with the Review Committee.

7.112 The Committee was of the view that a provision already exists in Cr. P.C. empowering State Governments to constitute SIT. The Committee, therefore, recommended that clause 23 may be deleted.

7.113 The Committee discussed at length the implications of that clause. At that time Central Government or a State Government did not have the power to transfer a case from one High Court to another High Court. This was the power given to the Judiciary. Section 406 of Cr.P.C. provides that the Supreme Court can transfer a case from one High Court to another High Court. Giving that power to the Central Government was illegal and took away the powers of Judiciary. Clause 24 was repugnant to the provisions of Section 406 of Cr.P.C. The Committee was, therefore, of the strong view that such a power should remain with the judiciary only. The exigencies visualized in this clause whereunder a State Government might request the Central Government to establish an additional Special Court outside the State for trial of scheduled offences, are impracticable and highly improbable as no State Government would indulge in self indictment stating that justice cannot be dispensed within that State. The Committee, therefore, recommended that clause 24 may be re-looked in the light of Section 406 of Cr. P.C.

7.114 The Committee recommended that while framing the rules, endeavour should be made for providing timely and adequate infrastructure for the Special Courts.

7.115 The Committee recommended that the proviso to the clause might be deleted.

7.116 The Committee was of the view that a person holding a post in the State or the Central Government for not less than seven years having special knowledge of law might not prove himself to be effective prosecutor in cases of communal violence. Special knowledge was different from practical knowledge. Practical knowledge and experience were very important for dealing with legal cases. The Committee, therefore, felt that the eligibility for appointment as a Public Prosecutor should be confined to practice in law for not less than seven years. The Committee also did not agree with the explanation of the Home Secretary that the provision for appointment of officers of the Union or a State having special knowledge of law as public prosecutors had been made to ease burden on the already over burdened legal practitioners. The Committee, accordingly, recommended that the word ‘or has held any post, for a period of not less than seven years, under the Union or a State, requiring special knowledge of law’ might be deleted in sub-clause (2) of clause 29.

7.117 The Committee held extensive discussion on the clause. The Committee considered the implications of the clause whereunder a Special Court might take cognizance of any scheduled offence without the accused being committed to it for trial and its effect on the right to life and personal liberty guaranteed under Article 21 of the Constitution. The Committee apprehended that the receipt of complaints by Special Courts without any police report might lead to a plethora of flimsy complaints in those Courts. The Committee also took note of the fact that summary trial was well defined in Chapter XXI of the Code of Criminal Procedure. The Committee was, therefore, of the view that the provision of summary trial should be deleted from the clause.

7.118 In the light of the reservations of the Committee on the maintainability of the clause vis-à-vis Article 21 of the Constitution guaranteeing protection of life and personal liberty of a person and Chapters XV and XXI of the Cr.P.C., the Committee recommended that the Government might have a re-look at clause 30 to bring it in harmony with the above mentioned constitutional and statutory provisions.

7.119 The Committee, after some discussion, felt that the clause is necessary for protection of witnesses and victims.

7.120 The Committee felt that the powers, functions, responsibilities of the three organs of the State, i.e., Legislature, Executive and Judiciary are well demarcated in the Constitution and under Clause 34. There seemed to be an attempt to transfer the power of maintenance of law and order from Executive to the Judiciary. The Committee, therefore,

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recommended that the words ‘suo motu or’ might be deleted in sub-clause (1) of clause 34. The Committee also recommended that the entire clause may be re-looked.

7.121 The Committee felt that Clause 35 which is connected with Clause 34 was also required to be re-looked.

7.122 The Committee recommended that the State Council should be presided over by the Home Minister of the concerned State. The application of mind at the political level could take place at that stage itself rather than the proposal being sent by the Council, for consideration of the Chief Minister.

7.123 The Committee felt that adequate representation needs to be provided for women in the State Council with at least one woman representative each under sub-clauses (g) and (h), in view of the fact that women are the first and the worst victims of communal violence.

7.124 The Committee was of the view that the composition of the Council does not provide for any representative from Banking and Insurance Sector which play a key role in relief and rehabilitation of victims of communal violence. The Committee, therefore, recommended that representative from the Union Ministry of Finance (Department of Economic Affairs, Banking and Insurance Divisions) might be associated as ‘Special Invitee’ in all the meetings of the State Council.

7.125 The Committee recommended that women should be given adequate representation in the District Council with atleast one woman representative each under sub clauses (e) and (f).

7.126 The Committee deliberated on the clause. It recommended that the National Council should be presided over by the Union Home Minister so that application of mind at the political level can take place at that stage itself. The Committee also recommended that women might given adequate representation in the National Council with at least one woman representative each under sub-clauses (iv) and (v).

7.127 The Committee took note of the fact that there was no uniformity in the payment of compensation to the victims which was discriminatory and causes discontentment amongst them. The Committee, therefore, recommended that the Government should come out with a policy of paying uniform compensation.

7.128 The Committee held detailed discussion on both the clauses. The Committee agreed with the suggestion of the Home Secretary that clauses 53 and 54 may be swapped and recommends accordingly.

7.129 The Committee expressed its concern on the likely consequences of sub clause (1) of clause 53 whereunder a Special Court may order payment of compensation by the offender to the victims. Although the victims will receive compensation from the offender yet this might lead to further enmity between the individuals and groups and cause more social tension.

7.130 The Committee also flagged the points enumerated in proviso to sub clause (1) of clause 53 and sub clause (4) of clause 54 whereunder assistance/compensation shall not be paid to a person who is involved in a scheduled offence. The Committee appreciated the intention behind these provisions that compensation should not be paid to the perpetrators of communal violence. However, the Committee expressed its concern over the implications of these provisions. Sometimes, a victim of communal violence may be deliberately implicated in a case just to deprive him of the immediate compensation. Though ultimately the victim may be acquitted and compensation awarded to him, but it would be too late and its very purpose may get defeated, as he may not receive the same when it is most needed.

7.131 The Committee, therefore, recommended that Government should address the above issues appropriately and bring suitable amendments in the clauses before the Bill is brought for consideration in Parliament.

7.132 This has been one of the most debated clauses in the deliberations of the Committee. A large number of suggestions/comments have been received on the clause. The Committee had had detailed discussion on the impact of the clause on States’ autonomy and the federal structure of our polity. In the successive rounds of in-house discussion, each member of the Committee present in those sittings expressed views on the clause and a majority of them articulated reservations thereon. In view of this the Committee thought it appropriate to ascertain the views of all the State Governments and recognized Political Parties on the Bill with particular reference to this clause.

7.133 It had been noted that out of thirteen National level and State level Political Parties which responded to the request of the Committee, ten opposed the clause, two supported it and one party while supporting the Bill in principle, did not offer any specific comment on the clauses of the Bill.

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7.134 As for the State Governments, out of twelve States which responded, eight opposed the clause, one supported it while another extended in principle support. Two States did not offer any comment.

7.135 The Committee also had the benefit of the views of some legal/constitutional experts and social/political scientists on the provisions of the Bill particularly this clause.

7.136 Towards the concluding stage of discussions on the clause, the view emerged in the Committee was that the apprehension of impingement of the clause on the States’ autonomy and federal structure, enshrined in the Constitution, had been adequately addressed and necessary safeguards already provided in the clause to prevent its misuse by the Central Government.

7.137 The Committee felt that the clause in its present form may be retained keeping in view the paramountcy of maintaining the secular fabric, unity, integrity and internal security of the Nation.

7.138 The Committee had recommended substitution of the words ‘death or’ by the words ‘grievous hurt, loss of life or extensive damage’ in sub-clause 1 (a) of clause 3, pertaining to one of the grounds for declaring an area as communally disturbed area by the State Government. Since sub-clause (1) of Clause 55 enumerates the grounds on which Central Government can give directions to the State Government and issue notification etc. to deal with communal violence, there is a necessity for carrying out consequential amendment in the said sub-clause in line with the amendment recommended in clause 3(1)(a).

7.139 The Committee recommended that the amendments proposed in the Schedule may be carried out before the Bill is brought in Parliament for consideration.

VI. Secretariat

7.140 The Committee Section (Home Affairs) headed by Committee Officer constitutes the Secretariat of the Committee. A Joint Secretary, a Deputy Secretary and an Under Secretary remained incharge of the Section with Additional Secretary holding overall charge.

7.141 To assist the Committee in its work, written material received from the Ministries/ various non-official organizations and individuals were studied from which points were culled out and questionnaires were prepared for the use of the Committee.

7.142 The work relating to drafting, consideration and adoption of draft Reports by the Committee along with their presentation, laying, printing and distribution was undertaken. The Secretariat also dealt with the work relating to the scrutiny of action taken notes on the recommendations/observations of the Committee contained in its Reports on Demands for Grants (2004-05) while considering Demands for Grants (2005-06) of the respective Ministries/Departments received from the Ministries/Departments concerned.

7.143 The Secretariat also studied material like Parliamentary Debates, Answers to Parliament Questions, Budget Documents, Five Year Plan Documents, Appropriation Accounts (Civil), Outcome Budget, CAG Reports on accounts of the Union Government (Civil), Books, Journals, Newspapers etc. relevant to the subjects under examination of the Committee. The Secretariat also made use of the material downloaded from the various websites.

Annexure-VII (See Para 7.6)

Details of the Meetings of the Committee on Home Affairs held during 2006

Sl. Date of Time devoted Main Agenda No. Meeting Hrs.-Mts. 1. 09.01.2006 1-30 Presentation of Home Secretary on the Communal Violence (Prevention, Control & Rehabilitation of Victims) Bill, 2005.

2. 10.01.2006 3-50 1. Internal discussion on “Administration of

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UTs”. 2. Presentation of Secretary, Ministry of DoNER on Economic & Infrastructural Development in North-eastern Region.

3. 19.01.2006 3-50 1. Presentation of Home Secretary on the Protection of Human Rights (Amendment) Bill, 2005. 2. Presentation of Home Secretary on Internal Security Scenario in North-Eastern Region. 4. 31.01.2006 0-40 Internal discussion on the Protection of Human Rights (Amendment) Bill, 2005.

5. 03.03.2006 0-30 Clause-by-clause consideration of the Protection of Human Rights (Amendment) Bill, 2005

6. 19.04.2006 3-00 1. Presentation of Secretary, Ministry of Development of North Eastern Region (DoNER) on Demand for Grants (2006-07) of Ministry of DoNER. 2. Internal discussion on Demands for Grants (2006-07) of Ministry of DoNER. 7. 25.04.2006 2-15 Presentation of Home Secretary on Demands for Grants (2006-07) of Ministry of Home Affairs. 8. 26.04.2006 3-45 1. Presentation of Commissioner of Police, Delhi on Demands for Grants (2006-07) and other aspects of functioning of Delhi Police. 2. Internal discussion on Demands for Grants (2006-07) of Ministry of Home Affairs. 9. 12.05.2006 0-25 Consideration and adoption of draft reports on Demands for Grants (2006-07) of Ministries of Home Affairs and DoNER.

10. 05.06.2006 2-13 Further consideration of the Communal Violence (Prevention, Control & Rehabilitation of Victims) Bill, 2005. 11. 06.06.2006 0-45 1. Discussion on the Communal Violence (Prevention, Control and Rehabilitation of Victims) Bill, 2005.

2. Consideration & adoption of draft report on Administration of UTs (Andaman & Nicobar Islands, Pondicherry & Chandigarh). 12. 15.06.2006 1-25 Oral evidence on the Communal Violence (Prevention, Control & Rehabilitation of Victims) Bill, 2005:—

(i) Justice Jaspal Singh, Retd. Judge, Delhi High Court

(ii) Prof. M.P. Singh, Department of Political Science, University of Delhi 13. 16.06.2006 2 -20 Oral evidence on the Communal Violence (Prevention, Control & Rehabilitation of victims) Bill, 2005:

(i) Shri Fali S. Nariman, Advocate, Supreme Court

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(ii) Prof. Zoya Hasan, Jawaharlal Nehru University 14. 28.06.2006 1-40 Consideration of the Communal Violence (Prevention, Control and Rehabilitation of Victims) Bill, 2005 15. 29.06.2006 0-30 Consideration of the Communal Violence (Prevention, Control and Rehabilitation of Victims) Bill, 2005 16. 11.07.2006 0-15 Obituary reference to the passing away of Shri Vasant Chavan, MP, Rajya Sabha 17. 21.07.2006 0-45 Oral evidence of Women’s Groups on gender aspects of the Communal Violence (Prevention, Control and Rehabilitation of Victims) Bill, 2005 18. 02.08.2006 0-30 Review of the progress made by the Committee so far in the examination of the Communal Violence (Prevention, Control and Rehabilitation of Victims) Bill, 2005 19. 04.09.2006 1-50 Oral evidence of Shri Syed Shahabuddin, Ex-MP and President, All India Muslim Majlis-e-Masha- Warat on the Communal Violence (Prevention, Control and Rehabilitation of Victims) Bill, 2005 20. 05.09.2006 1-15 Internal discussion on the Communal Violence (Prevention, Control & Rehabilitation of Victims) Bill, 2005 21. 20.09.2006 2-15 Official presentation of the representatives of Ministry of Home Affairs on the Sashastra Seema Bal Bill, 2006. 22. 28.09.2006 2 -15 1. Home Secretary apprised the Committee of the Action Taken by the Government on the observations/recommendations of the Committee as contained in paras 6.11.9 and 6.11.10 of its 116th Report on the State Emblem of India (Prohibition of Improper) use bill, 2004.

2. Committee recorded oral evidence of Home Secretary on the Communal Violence (Prevention, Control and Rehabilitation of Victims) Bill, 2005 23. 29.09.2006 1-40 Oral evidence of Home Secretary on the Communal Violence (Prevention, Control and Rehabilitation of victims) Bill, 2005. 24. 06.10.2006 1-45 1. Oral evidence of Shri H.S. Phoolka, Advocate, Delhi High Court on the Communal Violence (Prevention, Control and Rehabilitation of Victims) Bill 2005.

2. Brief by Home Secretary on the Communally sensitive Districts of India in connection with the Communal Violence (Prevention, Control and Rehabilitation of Victims) Bill, 2005. 25. 17.10.2006 0-15 Obituary reference to the passing away of Shri Kanshi Ram, former Member and Shri Lalit Suri, a sitting Member of Rajya Sabha. 26. 18.10.2006 4-00 Clause-by-clause consideration of the Communal Violence (Prevention, Control and Rehabilitation of Victims) Bill, 2005. 27. 30.10.2006 2-40 Clause-by-clause consideration of Communal Violence (Prevention, Control and Rehabilitation of Victims) Bill, 2005 28. 16.11.2006 2-00 Clause-by-clause consideration of the Communal

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Violence (Prevention, Control and Rehabilitation of Victims) Bill, 2005 29. 17.11.2006 1-20 Clause-by-clause consideration of the Communal Violence (Prevention, Control and Rehabilitation of Victims) Bill, 2005. 30. 07.12.2006 0-30 Consideration and adoption of draft One Hundred Twenty Second Report on the Communal Violence (Prevention, Control & Rehabilitation of Victims) Bill, 2005.

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CHAPTER-VIII

COMMITTEE ON HUMAN RESOURCE DEVELOPMENT

I. Composition of the Committee 8. The Department-related Parliamentary Standing Committee on Human Resource Development was reconstituted on the 4th August, 2006 in the year 2006. The first meeting of the newly constituted Committee was held on the 8th September, 2006. The Committee consisted of the following Members: — COMPOSITION OF THE COMMITTEE (As on 1st January, 2006) 1. Shri Vayalar Ravi — Chairman 2. @Shri Janardan Dwivedi RAJYA SABHA 3. Shri Dwijendra Nath Sharmah 4. Shri Shantaram Laxman Naik 5. @@Shri Ravi Shankar Prasad 6. Smt. Brinda Karat 7. Shri S. Anbalagan 8. Shri Uday Pratap Singh 9. ^^Shri M.P. Abdussamad Samadani 10. Prof. Ram Deo Bhandary 11. ^^^Shri Anil Dhirubhai Ambani 12. ***Shri Vijay Kumar Rupani 13. ***Shri Ali Anwar LOK SABHA 14. Shri Basudeb Barman 15. Shri Hari Sinh Chavda 16. Shri G.V. Harsha Kumar 17. Shri R. L. Jalappa 18. Shri Ramswarup Koli 19. Shri Manjunath Kunnur 20. %Shri Babu Lal Marandi 21. Dr. Thokchom Meinya 22. Shri Krishna Murari Moghe 23. Mohd. Mukim 24. Shri Tukaram Ganpatrao Rengepatil 25. Prof. Rasa Singh Rawat 26. Shri M. Rajamohan Reddy 27. Shri Tufani Saroj 28. Smt. P. Satheedevi 29. Shri A.R. Shaheen 30. Smt. Jyotirmoyee Sikdar 31. Shri K. Virupaxappa 32. Shri Devendra Singh Yadav 33. %%Shri Ganesh Prasad Singh @ appointed as Chairman w.e.f. 24.3.2006 on the vacancy caused due to the relinquishment of Chairmanship by Shri Vayalar Ravi w.e.f 29.1.2006 consequent on his induction into the Union Cabinet @@ Ceased to be a member of the Committee on expiry of his term in Rajya Sabha w.e.f. 2.4.2006 ^^^ Ceased to be member w.e.f. 29.3.2006 *** nominated w.e.f. 6.6.2006 % Ceased to be member w.e.f. 22.5.2006 %% nominated w.e.f 31.5.2006 ^^ Ceased to be a member of the Committee on expiry of his term in Rajya Sabha w.e.f. 1.7.2006

COMPOSITION OF THE COMMITTEE (Constituted on 4th August, 2006)

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1 Shri Janardan Dwivedi — Chairman

RAJYA SABHA 2 Shri Dwijendra Nath Sharmah 3 Shri Shantaram Laxman Naik 4 Shri Vijay Kumar Rupani 5 Shri Laxminarayan Sharma 6 Shri Uday Pratap Singh 7 Shrimati Brinda Karat 8 Shri S. Anbalagan 9 Prof. Ram Deo Bhandary 10 Shri Ali Anwar

LOK SABHA 11 Shri Ashok Argal 12 Shri Basudeb Barman 13 Shri Harishchandra Chavan 14 Shri Harisinh Chavda 15 Smt. Paramjit Kaur Gulshan 16 ^Shri R.L. Jalappa 17 Shri Ramswaroop Koli 18 Shri G.V. Harsha Kumar 19 ##Shri Manjunath Kunnur 20 Smt. Nivedita Sambhajirao Mane 21 Smt. Archana Nayak 22 Smt. M.S.K. Bhavani Rajenthiran 23 Prof. Rasa Singh Rawat 24 #Shri M. Raja Mohan Reddy 25 Shri Ganesh Prasad Singh 26 Shri Chengara Surendran 27 Dr. Meinya Thokchom 28 Shri K. Virupakshappa 29 #Dr. Kunwar Devendra Singh Yadav 30 *Shri Ravi Prakash Verma 31 @Shri Rahul Gandhi 32 @Shri Ram Lakhan Singh

^ Ceased to be a member of the committee w.e.f .28.11.2006 ## Ceased to be a member of the committee w.e.f. 31.8.2006 # Ceased to be a member of the committee w.e.f. 25.09.2006 * nominated w.e.f. 25.09.2006 @ nominated w.e.f. 10.10.2006

II. Subjects selected for examination

8.2 The Committee on Human Resource Development did not select any fresh subjects during the year 2006. It continued with examination of the following subjects selected in 2005: —

Sl. Ministry/Departments Subjects No. 1. Department of School Education and Problems being faced in implementation of centrally Literacy sponsored schemes vis-a-vis Mid Day Meal Scheme and Sarva Shiksha Abhiyan

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2. Ministry of Women and Child Problems being faced in implementation of centrally Development sponsored schemes vis-a-vis Integrated Child Development Service(ICDS) Scheme 3. Department of School Education and Functioning of Kendriya Vidyalayas Literacy 4. Department of School Education and Functioning of Navodaya Vidyalayas Literacy 5. Department of Higher Education University and Higher Education 6. Ministry of Youth Affairs and Sports Promotion of Sports

8.3 Besides this, the following Bills were considered by the Committee which were referred to it by Hon’ble Chairman / Hon’ble Speaker for examination and report:—

Sl. Date of reference Name of the Bill No. 1. 22.05.2006 The National Institutes of Technology Bill, 2006 2. 01.06.2006 The Immoral Traffic (Prevention) Amendment Bill, 2006 3. 19.07.2006 The Central Institute of English & Foreign Languages University Bill, 2006 4. 04.08.2006 The Sikkim University Bill, 2006 5. 04.08.2006 The Tripura University Bill, 2006 6. 04.08.2006 The Rajiv Gandhi University Bill, 2006 7. 04.09.2006 The Central Educational Institutions (Reservation in Admission) Bill, 2006

III. Constitution of Sub-Committees of the Department-related Parliamentary Standing Committee on Human Resource Development

8.4 No Sub-Committee was constituted during the year 2006.

IV. Review of work done

(a) Sittings of the Committee

8.5 During the year 2006, the Committee held 21 sittings lasting over 53 hrs 45 minutes. A statement showing the dates and duration of each sitting of the Committee, as also the subjects discussed during this period are given in Annexure VIII.

(b) Sittings of Sub-Committees

8.6 No Sub-Committee was constituted during the period under review.

8.7 No study visits were undertaken by the Committee during the period under review.

8.8 Verbatim record of proceedings of the sittings of the Committee, at which evidence was taken, was maintained.

V. Reports presented

(a) Reports

8.9 During 2006, the Committee presented the following Reports to the House: —

Sl. Number of Report and date of Report No. presentation/laying of Report 1. 172nd Report on University and Higher Education of the Department of Secondary and Higher Education (Ministry 22.5.2006

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of Human Resource Development) 2. 173rd Demands for Grants (2006-07) of the Department of Elementary Education and Literacy (Ministry of Human 22.5.2006 Resource Development) 3. 174th Demands for Grants (2006-2007) of the Department of Secondary and Higher Education (Ministry of Human 22.5.2006 Resource Development). 4. 175th Demands for Grants (2006-2007) of the Ministry of Women and Child Development. 22.5.2006 5. 176th Demands for Grants (2006-2007) of the Ministry of Youth Affairs and Sports. 22.5.2006 6. 177th Report on "The Central Institute of English and Foreign Languages University Bill, 2006" of the Department of 25.8.2006 Secondary and Higher Education (Ministry of Human Resource Development). 7. 178th Report on 'The National Institutes of Technology Bill, 2006' of the Department of Higher Education (Ministry of 23.11.2006 Human Resource Development). 8. 179th Report on "The Sikkim University Bill, 2006" of the Department of Higher Education (Ministry of Human 23.11.2006 Resource Development) 9. 180th Report on "The Tripura University Bill, 2006" of the Department of Higher Education (Ministry of Human 23.11.2006 Resource Development) 10. 181st Report on 'Rajiv Gandhi University Bill, 2006' of the Department of Higher Education (Ministry of Human 23.11.2006 Resource Development) 11. 182nd Report on 'The Immoral Traffic (Prevention) Amendment Bill, 2006' of the Ministry of Women and Child 23.11.2006 Development 12. 183rd Report on Major issues concerning Kendriya Vidyalayas of the Department of School Education and Literacy 30.11.2006 (Ministry of Human Resource Development) 13. 184th Report on Major issues concerning Navodaya Vidyalayas of the Department of School Education and Literacy 30.11.2006 (Ministry of Human Resource Development) 14. 185th Report on 'Promotion of Sports in India' of the Ministry of Youth Affairs and Sports 30.11.2006 15. 186th Report on 'The Central Educational Institutions (Reservation in Admission) Bill, 2006' of the Department 1.12.2006 of Higher Education (Ministry of Human Resource Development)

(b) Action Taken Reports

8.10 No Action Taken Report could be presented to the House during 2006 since the ATNs were received very late from the respective Ministries/Departments.

8.11 Minutes of sittings of the Department-related Parliamentary Standing Committee on Human Resource Development relating to various Reports presented to the House were prepared and presented to the House alongwith the relevant Reports.

VI. Summary of Recommendations

(a) 172nd Report

Higher Education Today: Important Issues

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8.12 The Committee took up the problems as well as challenges before our Higher Education system for a special study and presented the 172nd Report after having wide ranging discussion with all the stake-holders. It felt that if India were to achieve the developed status in this milieu of global competition, there was no option but to reorient its higher education system to be vibrant, competitive, meaningful and relevant. It would have to grow both in terms of quantity as well as quality, mainly with a view to converting its vast population as asset, rather than a liability, as had been done by China.

8.13 The pressure on higher education system was going to further increase due to large number of additional students expected to join the higher education institutions in coming years, particularly due to upward pull generated by popular interventions like Sarva Siksha Abhiyan and Mid-Day Meal Scheme.

Access and Equity

8.14 The Committee was of the opinion that the issues of access & equity, in fact, were the two core issues to the expansion of higher education and hence, to the overall progress of a nation. The Committee, therefore, underlined the urgent need for broadening access to higher education by expanding it and by making it affordable.

8.15 The Committee was of the opinion that if, India were to compete and survive the intense global competition in the 21st century as knowledge/information society, percentage of our students going for higher education will have to be increased sufficiently. Our target of 10 per cent was unlikely to be achieved with the present level of our efforts and performance in higher education field. The Committee emphasized that we would have to set our goals high and work for it relentlessly. The Committee, therefore, recommended that our aim should be to increase the access ratio to at least 20 per cent by 2015, which could be the threshold limit for our remaining in global race as also for sustainable development of the country.

Major Constraints

8.16 Several social, economic, administrative and other reasons seem to act together as constraints to access and equity in higher education. Factors like rural-urban divide, gender disparity, regional imbalances, decreasing public allocation, economic hardship, increasing cost due to commercialization, etc. were some of the major reasons of this phenomena. This scenario of higher education, particularly in the ever-expanding competitive environment, did not inspire required confidence, if India were to play its assigned role at the global level. The Committee, therefore, believed that India had to rise to the occasion urgently and make its higher education system not only competitive but also accessible and affordable to everyone.

8.17 Dimension of this problem was not only confined to access to higher education of the age group of 18-23 years. It also extends to those in the need of continuous learning and are older than the age group of 18-23 years. The Committee felt that the demand for higher education from diverse kind of learners calls for the courses that are flexible; can be studied off- campuses and credits received are portable. The Committee desired the Government to take proactive measures in this regard urgently. Other Imbalances

8.18 The Committee was dismayed to note that there was tremendous imbalance in access to higher education in urban and rural areas. Most of the colleges and universities, the Committee noted, were located in urban or semi-urban areas. About the quality and output of the colleges in rural areas, less said was better. While only 16 out of every 1000 were college graduates in rural areas, 111 out of every 1000 belonged to this category in urban areas. The same trend was also discernable in relation to house-hold economic status both in rural as well as urban areas. Higher education in the country, the Committee noted, was thus largely a pro-rich and urban phenomenon.

8.19 Similarly, the gender disparity in higher education in India was yet another area of concern. The Committee was of the considered opinion that urban bias and gender disparity in higher education are the two main stumbling blocks to access and equity in this area. Large sections of our population, therefore, were denied access to learning for economic, cultural, religious, geographical and other reasons. Regional Disparity

8.20 The Committee noted the conclusion of a study undertaken by a group of Indian scholars based in Japan and USA, which had analyzed the funding of Higher education in different states by the Department. The study had shown that Union Government’s expenditure on higher education to various states was grossly uneven. For example, last year’s budget

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allocation for the states like Bihar, Rajasthan, Orissa etc., was highly inadequate. Per person expenditure on higher education in Bihar was Rs. 1.87, in Rajasthan Rs. 2.59 and in Orissa it was Rs. 4.07 while in States like Uttaranchal it was Rs. 105.42, in Arunachal Pradesh Rs. 105 and in Assam 77.7.

8.21 Another distinctive feature of regional disparity was visible in the number of colleges/institutions located in different States. The four Southern States and Maharashtra having 32% of India’s population have 46% of total general colleges and almost 60% of professional institutions. In contrast, in the States of UP, MP and Bihar (including Jharkhand) having 34% of population, only 23% of general colleges and only 14% of professional colleges were located. The Committee was concerned to see that in the most populous States where nearly 3/4th of our population lived, the access ratio was far below the national average. It presented quite a dismal picture about the existing status of higher education in the country.

8.22 The Committee strongly felt that there was an urgent need to remove this regional disparity. It was high time that Central Government took some initiatives for encouraging and helping the State Governments to set up educational institutions in tune with the global requirements.

8.23 The Committee also emphasized the special focus for improving access and equity in remote regions and geographically disadvantaged places. It also desired special funding and region-specific norms for North-East Region & Jammu & Kashmir. The Committee appreciated the efforts of the government for setting up Central universities in North- Eastern States. The Committee recommended that such universities may be set up in the remaining States of North-Eastern region including Sikkim at the earliest. The colleges in these areas should be given special funding in addition to normal development grants by the UGC.

SCs/STs in Higher Education

8.24 The Committee noted that the UGC had tried to help the under-privileged sections of the society through some special schemes. A Remedial Coaching scheme for the benefit of students belonging to the SC/ST and weaker sections of the society was introduced in 1994. Another scheme of remedial coaching was introduced with a view to improve the overall performance of these students in the examinations. The Commission introduced the scheme of establishment of SC/ST cells in the universities in the year 1983, with a view to provide information regarding facilities available for SC/ST students in universities and colleges. The SC/ST Cells were closely monitoring the implementation of reservation policy in higher education. But these attempts, the Committee noted have not helped much. For example, the enrolment of SCs in higher education had ranged between 8.6 per cent in 1990-91 to 11.3 per cent in 2002-03. Enrolment of ST students in higher education was between 2.1 per cent to 3.6 per cent in 1990-91 and 2003-04 respectively. The Committee recommended that special programmes for encouraging students from backward and minority communities also need to be prepared urgently as their participation in higher education was abysmally low, as compared to their percentage in total population. This poor situation reflects poor enrolment and retention of all children including the SC/ST students in school education. All efforts be made to ensure the enrolment and retention of students right from school level.

Convergence of Conventional and Distance mode

8.25 The problem of access and equity was closely linked to opportunity. The Committee felt that the solution to the problem of opportunity lies in convergence of conventional with modern distance education systems with open and flexible structure. The Committee, therefore, was of the considered opinion that we must exploit our ICT potential for its penetration to the country’s remotest corners to expand the access to higher education. The Committee was of the view that the Government should make an earnest beginning to train the people for utilizing the latest technologies to make the higher education easily accessible. It would also cut across the rural-urban divide as well as gender disparities in this regard.

System of Affiliation

8.26 Another issue that Committee wished to highlight was about system of affiliation. In India most of its 16000 odd colleges were affiliated ones. In the absence of proper facilities, many of these colleges perform only classroom teaching in a traditional way. The Committee was informed that nearly 89 per cent of UG students, 66 per cent of PG students and 85 per cent of the faculty in higher educational institutions, were in these affiliated colleges. Consequently, the M.Sc., MA, Ph.Ds that were coming out of such colleges were undoubtedly of poor quality. What was worse, in India major affiliating universities were over-burdened with the administrative works which are unproductive in academic terms. The Committee was of the view that this was certainly telling upon the academic competence of our universities. The VCs of such universities were left with no time for their academic pursuits. The Committee, therefore, recommended that there should be

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a cap on the number of colleges being affiliated to a university. For this, we would need to open more and more universities for which about 1000 universities and university level institutions be set up by 2015 in the Central, State and private sector. A country like Japan, it was noted, had around 700 universities and USA had nearly 3000 of them. Besides, setting up more universities, we must encourage good colleges and institutions to acquire ‘deemed university’ or autonomous status by fulfilling the norms laid down in this regard. This, the Committee felt, would not only lessen the burden of universities but also enhance their quality and output greatly. Besides, the colleges should be encouraged to offer more and more applied courses by offering job-oriented courses particularly after 10+2. These measures, if taken up in a planned and fixed schedule would go a long way in decreasing the unnecessary burden on our universities. Open Universities

8.27 The Committee believed that for a vast country like India where accessibility to higher education was quite low, Open Universities had the vast potential for taking higher education to more and more people irrespective of different barriers. This system catered also for in-service persons for whom it was a second chance as well as for regular learners. It, therefore, needed to be provided greater thrust by integrating utility courses with personal development and socio-economic problems. The courses offered should be mainly job-oriented as far as possible. High priority should be given for opening more study centres particularly covering rural and remote areas with concentration of SC/ST and other backward communities’ students.

8.28 In view of many other Open Universities run by the State governments, the Committee felt the need for closer relationship and regular interaction between them and the IGNOU, with a view to avoiding unnecessary duplication in the production of course material etc. For this, a strong networking had to be developed amongst them. This also called for uniformity with regard to the structure of the courses leaving adequate scope for region-specific variations.

8.29 The Committee’s attention had been drawn to some inherent drawbacks present in the system of education. Lack of quality faculty, non-availability of relevant study material, lack of basic facilities like good libraries, modern labs, computer, multimedia facilities, etc. were the major issues that needed immediate redressal. Absence of an effective and efficient information dissemination system to the students about various types of courses, examination schedules, results, degrees, etc. caused great hardship to students. Even at the IGNOU (HQ), students had to run from pillar to post for these things. The Committee, therefore, recommended that these aspects be looked into urgently with a view to provide an adequate and efficient delivery mechanism and support system in the IGNOU and other Open Universities. The Committee was of the considered view that to make Open Universities more attractive and relevant, efforts be made to ensure quality of study material, timely dispatch thereof, dedicated teachers at the study centres, provision of necessary infrastructure, use of ICT, etc.

8.30 The Committee found that there was no accreditation system in IGNOU. It was surprised to note that the work of neither IGNOU nor any other State Open University, any Correspondence Course Institutes (CCI) had ever been assessed since they started functioning. As a result, credibility of these institutions vis-à-vis mainstream education system was poor. The Committee, therefore, emphasized the urgent need for an effective assessment and accreditation system for these institutions so as to enhance and maintain quality of education provided through the distance mode.

8.31 The Committee was concerned over the plight of students of open universities who were in different areas of the country. The Committee noted that they did not have a platform at present to voice their grievances effectively. The Committee, therefore, emphasized an urgent need for putting a mechanism in place for the students to highlight/redress their grievances. Such a machinery could also be utilized for a regular feedback on the efficacy of open learning programmes.

8.32 The Committee noted that the students of Open and Distance Learning (ODL) are projected as poor cousins of mainstream students. It had been reported that students coming through ODL channel were found to be lower in ability and performance as compared to the mainstream students. The Committee was perturbed to note that pass percentage of ODL students was very unsatisfactory. It strongly felt that this situation needed to be corrected urgently for instilling confidence in the public about the ODL system. The Committee recommended that all necessary steps be taken urgently for improving quality as well as standard of education imparted through ODL channel so that it could be made a popular and affordable system.

8.33 The Committee took note of the fact that though the open universities were able to raise some revenue by running various courses offered through distance mode, there was no facility of fee concession available to eligible students in the ODL system. The Committee found such a system to be discriminatory. It felt strongly that the fees in the system should also be rationalised and the poor and meritorious students be given some kind of fee concessions or assistance.

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Distance Education Council

8.34 The Distance Education Council (DEC) had been created under the IGNOU Act for the promotion and coordination of Open University and distance education system and for the determination of its standard. The Committee found that the opinion was divided on the power of the DEC to recognize/approve the courses/degrees being offered by the various other universities/institutions in the country by distance mode. It was argued that the DEC having been created under the Act of a university should not have such jurisdiction in respect of courses/degrees offered by the other universities. It may be pointed that the DEC had been issuing notifications to universities asking them to get their programmes approved quoting a particular Gazette Notification regarding students not being eligible for Central Government jobs, if they pursue courses not approved by the DEC. Many of the universities were not prepared to accept the DEC jurisdiction in this regard mainly on the ground that the DEC was a body under IGNOU Act. As a result, a lot of confusion had been created. The Committee felt that to make the decision explicit, there was a need to have a separate Act for the DEC for making it a regulatory body for open university and open learning system and distance mode on the lines of AICTE or UGC.

8.35 The DEC also provided development funds to open universities and other such institutions from the funds given by the Central Government. The Committee was happy to note the several initiatives taken by the DEC, such as common pool of programmes, evolving common standards, system of credit transfer, etc. The Committee was also of the view that the DEC should be developed as an apex body for promoting, coordinating and determining standards in distance education more or less on the lines of the UGC in the case of conventional education.

Women and Higher Education

8.36 National Policy on Education, 1986 had emphasized to gear the entire education system to play a positive role for the empowerment of women by providing special support services for their education and also by removing factors, which impede the spread of women education. The ‘Programme of Action, 1992’ also proposed to use education as an agent of basic change in the status of women for neutralizing all the distortions to have a well-conceived edge in favour of the women. These well meaning proclamations by the landmark documents, the Committee felt, have remained on paper only even after more than two decades they were made. Women’s participation in higher education had been quite disappointing, despite significant contributions made by them in different areas of life. They constituted almost half of the total population of India, yet a large proportion of them was still illiterate and ignorant. In Committee’s opinion, the overall picture of women education, in fact, was of discrimination, limited opportunity, numerous obstacles and utter neglect.

8.37 The Department sought to make out a case before the Committee that there had been significant improvement in the position of women in higher education. The Committee was informed that the enrolment of women in higher education had increased from 10 per cent of the total enrolment in higher education in 1950-51 to 40 per cent in 2004-05. It had also been informed that the number of women colleges has increased from 1003 in 1993-94 to 1849 in 2004-05. The Committee felt that it was not a realistic way of projecting the position of women in the higher education. These figures become meaningless if compared with the proportion of women in the age group of 18 to 23 years to the total population in this group. Secondly, their participation (40 per cent) in higher education became abysmally low because this percentage was, in fact, of the 7 per cent of the total youth in the eligible age group that was currently in higher education.

8.38 Of the total women enrolled during 2004-05, as may be noted, more than 50 per cent were in Arts and Humanities. Of the remaining 50 per cent 20 per cent were in Sciences; 16 per cent in Commerce and Management; just 1.86 per cent in education; 4.15 per cent in Engineering and Technology and 3.6 per cent in Medicine. The presence of women in agriculture, mainstay of Indian economy, was just negligible. It was a matter of great concern that the participation of women in the areas with great demand such as management, engineering/technology, medicine, etc. was very low in India. Such a situation, the Committee felt, did not augur well for the future of this nation. Can a nation progress in real terms and catch up with others in this fiercely competitive world with their women-folk remaining virtually outside the higher education system? The Committee, therefore, recommended that the participation of women in professional courses, which was abysmally low at present, needed to be improved manifold without further delay. More and more women as Engineers, Professors, Lawyers, Doctors, Architects and Entrepreneurs could mould the face of India to a great extent.

8.39 The representation of women in higher education, the Committee recommended, needed to be increased proportionately particularly, when their performance as well as number at the senior secondary level had improved greatly. Some kind of institutional mechanism for looking into this problem and coordinating various efforts made in this regard at the national level needed to be put in place. It is high time that the curriculum was redesigned to remove all gender biases as also to gender sensitize education personnel and administrators. A pro-girl-child climate in the community needed to be created for this. Provision for enough scholarships, fee concession, hostels, staff quarters, provision for transportation, etc. for women needed to be provided in the institutions of higher learning.

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8.40 The Department appeared to have no relevant and accurate statistics in respect of women’s participation in higher education. Information given by the Department to the Committee was simply taken out of UGC Annual Report 2004-05. The Committee expected the Department to provide every relevant data in respect of different components reflecting exact status of women in higher education. So much so, the allocations and expenditure made for the women-specific programmes, which form a part of gender-budgeting that every Department had to have, was conspicuous by absence in the note supplied to the Committee. The Committee was at a loss to see as to how the Department was planning for the expeditious development of women in higher education in the absence of relevant statistics/information. 8.41 The Department in its notes had mentioned the following schemes that were currently being run for the women: Special scheme for construction of women hostels; establishment of women’s studies centres; Day Care centres in universities, etc. The Committee noted that neither the Department nor the UGC had any concrete and targeted scheme or programme for improving the participation of women in higher education. Such an indifferent approach for this very crucial aspect was almost perilous. The Committee, therefore, recommended that formulation of targeted/specific schemes and programmes for this purpose needs to be done by the Government urgently. The Committee had learnt that a very good scheme for supporting single girl child of a parent for higher education had been announced. The Committee emphasized the need for its wide publicity. Sufficient funds should be provided for this purpose.

8.42 The UGC scheme for opening women study centres in the universities, the Committee found, could not pick up and precious little appeared to have been done in this regard. The Committee recommended that it must be ensured that all the universities both Central as well as State, have these centres in one form or the other, by the end of Tenth Plan period. For this, adequate funds need to be provided urgently.

8.43 The open distance learning, the Committee felt, could be a very potent method to fight gender disability in higher education. Studies in different areas may be promoted for women in user-friendly manner in the language they prefer with suitable study materials. Training rural women for the purpose of involving them through community participation in our development process should also be promoted. Their involvement in Sarva Siksha Abhiyan more particularly the Mid-Day Meal could make these schemes a great success. For achieving these objectives, the Committee was of the considered view, Government would have to play a pro-active, positive, interventionist role to ensure access of all eligible women to the higher education.

Relevance

8.44 Education, be it primary, secondary or higher, if it was not contextual and relevant, will not be able to meet the challenges and demands of the time. The Committee noted that in today’s world, things in every walk of life are changing at a very fast pace. It has, therefore, become a daunting task for education to keep pace with the challenges posed by the contemporary socio-economic transformation. Higher education, in fact, faced this impact more than other levels. Relevance of higher education, therefore, becomes of utmost significance for the development and survival of a nation in the changed global/liberal context. In the Committee’s view, its relevance should be seen with reference to marketability of the graduate and post-graduate students it produces; with reference to its reach to marginalized sections; and its relevance for the socio- economic development of a society. 8.45 The Committee noted that the problem of relevance of higher education was mainly with reference to general education i.e., Arts, Humanities and Social Science and Law and Commerce, wherein 83 per cent of the 92 lakhs students, i.e., 76 lakhs are enrolled. However, in today’s new economic environment, need for knowledge-workers and graduates with sound fundamentals, good analytical abilities and appropriate utility-oriented skills were on rise and they were in great demand. The Committee found that most of our universities and colleges were providing out-dated, if not sub-standard education in these disciplines, leading to the degrees and diplomas of little or no substance. The content as well as the quality of education was mostly out of context and even if the curriculum was relevant, the teaching process was unscientific and sub-optimal. Not only this, the Committee came to know that our institutions sometimes copy syllabi from Western Universities. Standard books used for teaching were from the West and those written indigenously were usually without an original view on the subject. As a result, solutions to our problems turn out to be highly misplaced. Such an education, the Committee was of the view, would not have much relevance to our conditions and demands. It was, in fact, one of the main reasons for increasing disinterest and frustration amongst the country’s youth. The Committee recommended that the Government must take necessary measures, in consultation with experts, to ensure that required revision in the content and curriculum was carried out periodically. It has to be in keeping with indigenous conditions and requirements. There has to be an institutional mechanism to ensure that higher education remained relevant to the changing times. Process of such revision, the Committee felt, should be an on-going one for making higher education relevant and useful.

Vocational Education

8.46 The Committee noted that as envisaged in the National Policy on Education as also in the revised Plan of Action- 1992, the UGC implemented the recommendations made by the Core Committee on Vocationalisation (Career Orientation)

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of Education. This was to ensure that the students at the first degree level develop knowledge, skills and attitudes for gainful employment with emphasis on self-employment. Since 1994-95, a large number of colleges and universities, the Committee was informed, had been identified to provide assistance under the scheme on selective basis. The Committee was informed that the UGC, in fact, had been receiving very good response from the universities/colleges to start vocational courses in various subjects, but not all such requests from the universities/colleges could be agreed to because of the inadequacy of funds. This, according to the Committee, indicated that the students are accepting the concept of Vocationalisation of Education as it is job-oriented and a move towards entrepreneurship. The Committee, therefore, recommended that inadequacy of funds should not act as an obstacle to vocationalisation of education. It would, in fact, reduce the undesired pressure on universities and institutions of higher learning. Adequate funds be allocated for this purpose.

8.47 The scheme of vocationalisation of education actually, stipulate a close coordination between the industries and educational institutions. The institutions intending to avail of the scheme of Vocationalisation of Education and applying to the UGC for financial assistance, are required to submit a letter of intent to UGC duly signed by the industries that the students will have on-the-job training and other practical experiences in their industries and that they will pick up some of the students after completion of particular vocational course. The Committee was of the opinion that linking of education with industry was something very desirable today. The Committee believed that industry-institution linkages be encouraged as this will take care of many problems simultaneously - promote relevance in the curriculum, enhance the employability of students, provide training facilities and mobilising some resources. Such an interface with industries, Committee believed, would encourage more and more students to opt for the vocational streams instead of going for the general courses, which have not much demand in the job-market. In the process, industry will also get suitable trained manpower relevant and dedicated to its needs. A body consisting of eminent persons from industry and academia be formed to lay down necessary modalities for such a partnership as soon as possible.

Dual Degree

8.48 The Committee was informed that UGC had allowed the system of earning certificate/diploma in utility-oriented programmes through parallel mode alongwith the regular degree. This is to provide an alternative to the students just in case. The AICTE had also allowed the system of earning dual degrees simultaneously. The Committee welcomed this and felt that the system of degree plus certificate/diploma in utility oriented programme appeared to be quite germane to the emerging scenario where demand for skilled manpower in different disciplines was increasing at the global level. The Committee felt that our ultimate objective should be to ensure that students do not merely have to look for a job; instead they are able to create jobs for themselves and many others. Need of the hour, according to the Committee, was to develop in- house faculty and other facilities in the colleges for this purpose. This will make our colleges more vibrant and attractive. This was an area, the Committee felt, where public-private partnership could play a creative role in augmenting the activities of our colleges. The Committee at the same time expressed its apprehension about the possibility of main degree neglected at the cost of utility-oriented one, as a result, a student may not be able to show his best in either. This aspect needed to be taken care of by the UGC and AICTE. We must also put a system of accreditation for such courses.

Promoting Research

8.49 Research performance is one of the parameters for deciding world ranking of the universities. The fact that only one of our universities founds place in top 500 universities of the world, speaks volumes about the status of research in our country. The Committee found that the research activities were not getting due attention in our universities, which should have been one of their real bases. In fact, there have emerged the system of premier institutes and laboratories, both in pure sciences and the social sciences and humanities, where research was moved away from our universities. As a result of separation of research from teaching, the latter acquired gradually a secondary importance. The Committee, therefore, was of the opinion that research needs to be closely linked with teaching for which scientific base in our universities needs to be strengthened that will attract not only talented students but also industry to our university laboratories.

8.50 Private people are not inclined to support research in universities and research being a capital-intensive activity, their participation would help greatly. The needs of the institutions, research labs and industries are mutually common. Therefore, there need to have greater degree of connectivity and cooperation. The Committee strongly felt that needs of these three entities may be interlinked to make research more relevant and productive. Inability of researchers to secure employment for themselves was also one of the reasons for such a state of affairs in this area.

8.51 Lack of allocation from state kitty was also a reason for poor research activities in the universities. The Committee observed that only a fraction of UGC fund is spent on research. This was one of the reasons that universities do not have much of R&D efforts. Smaller outlays mean UGC assistance to only a handful of universities. Secondly, of the research assistance that UGC extends, only a small fraction goes to specific projects; a sizable proportion thereof goes in the form of individual fellowships. The Committee felt that it would be worthwhile if the bulk of research funds from the UGC went to

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specific projects which have been found to be more fruitful and result-oriented the world over. 8.52 The Committee, therefore, proposed the following measures to help make research a mainstay of our higher education. Governments, both Central and State and other funding agencies should provide organized support to research activities for modernizing laboratories and removal of obsolescence in equipments on regular basis. A Research Council in UGC needs to be set up; the UGC should launch a network for access to research material and data across the universities.

8.53 The Committee also emphasized the need for monitoring and evaluation of research in universities by setting up Monitoring and Evaluation (ME) units under the supervision of a Committee of eminent professors from different disciplines. It needs coordination with national laboratories. Number of fellowships also needs to be suitably enhanced so that students are attracted to undertake research in newer areas. Promoting Basic Sciences

8.54 India has had a long tradition of pure sciences, the Committee was concerned to notice the increasing disinterest among the younger generations in this area. It was mainly because of non-availability of suitable job opportunities and other incentives in the pure sciences. The Committee found this situation disquieting because India badly needs to integrate R&D activities in sciences with its economic and social programmes, because science must serve the socio-economic and other needs of our society. Science and Technology has to play a greater role in prevention, mitigation and management of the impact of natural disasters like earthquakes and Tsunamis. The Committee, therefore, felt that we must find ways of making the study of pure as well as applied sciences, both in teaching and research, more attractive for our students, if India was to use science for the welfare of its people. We must augment further our efforts in critical areas like agricultural production, food processing, energy, transportation, communication, etc. so as to be able to compete and excel in the global arena. Immediate steps, therefore, need to be taken for popularizing the study of basic sciences by having career-oriented programmes in applied sciences. Adequate incentives and infrastructure for research and development is needed urgently. The base for sciences in the universities needed to be rebuilt and strengthened by taking newer initiatives in the frontier areas.

8.55 The de-bureaucratization in most of the scientific and technological institutions, would have to be ensured for promoting research activities and preserving their academic autonomy.

8.56 The entire science and technological support system, in Committee’s view, needed to be restructured for making the study of basic sciences more attractive. The Committee was of the view that all research institutes may also be persuaded to have under-graduate teaching programmes. Another feasible approach could be to have a co-coordinating mechanism whereunder research institutes participate in teaching as well as take up collaborative research projects with university faculty and students. Secondly, regular exchange of faculty could be managed between the research institutes and universities.

8.57 The Committee was of the view that there was urgent need for building more centres of excellence in science like Indian Institute of Sciences. The Committee was happy to learn that two such institutions have already been proposed to be established at Kolkata and Pune. More such institutions should be provided in other regions of the country. The Government would have to provide necessary resources and funds for research and development for inventing required technologies for agriculture, food processing, energy, bio-technology, pharmaceutical and health. These must be treated as priority areas for such funding.

Social Sciences and Humanities

8.58 The processes of privatization and liberalization had generated new demands, particularly in higher education. It had led to considerable neglect of social sciences. These disciplines were such branches of knowledge which did not have any immediate market value. Private participation had been mainly confined to professional courses. Government funding, therefore, remains the only source available for social sciences. What was more disturbing was that Government funding is increasingly being diverted for professional institutions, thus leaving the social sciences in the state of utter neglect. The Committee was of the view that utility of social sciences to our society, polity, economy, etc. could not be overlooked. They add value to one’s life and any study that is value-free, in fact, tends to become sterile. The Committee, therefore, was of the considered opinion that this imbalance needs to be corrected immediately by making the study of social sciences scientific, interesting and relevant to present situation. The Government and the UGC may set up an Expert Committee for presenting a blueprint for this purpose.

Quality and Excellence

8.59 Such a situation, the Committee felt, does not augur well for the future of higher education in the country. The

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Committee, therefore, felt that the issue of quality and excellence of higher education should have been given more importance in India. Academic ambience in our universities, etc. needed to be improved a great deal. India had to create its new identity as knowledge-creator so as to face the challenges posed by the GATS as also to promote Indian higher education abroad. Quality and excellence were the watch-words in today’s liberalized environment. Making higher education globally competitive, therefore, could not be postponed any further.

8.60 The Committee at the same time could not overlook the fact that India despite severe limitations had created a large scientific/technical manpower, who have earned a pride of place in the world community. India had not only to sustain its position but also to be a front-runner in the global competition. That could be done, according to the Committee, only when the standard and quality of our educational institutions and its graduates were greatly improved. They would have to be instilled with a high level of creativity, innovation, dedication, patriotism, etc.

8.61 Quality in education did not necessarily connote its demand in the job market only. It also required students to acquire basic values and norms of life. Our education system unfortunately, appeared to be neglecting this aspect greatly. As a result, deviant behaviour, particularly amongst our youth is increasing at alarming proportion that needed to be arrested. The role of our education system for this purpose must be restored, before it was too late.

8.62 Question of quality was also linked directly with the quality of teachers, curriculum design and development; evaluation of teachers’ and students’ performance; teacher’s training; and other infrastructure such as good labs, libraries, sports facilities, etc. Greater and regular sharing of experiences through networking and otherwise between different institutions at the national and global plane was highly recommended. Multi-disciplinary curriculum with stress on developing problem-solving abilities, augmenting knowledge skills and group activities were essential to provide relevance and usefulness to real life situations. Quality of higher education could be greatly enhanced through the use of audio-visual techniques and the modern information and communication technologies.

8.63 Providing adequate exposure to teachers and students by holding more and more conferences and seminars, orientation and refresher courses for teachers; making selection process of Lecturers/Readers/Professors more transparent and shifting from incremental budgeting to performance budgeting are some of the areas, the Committee felt, if implemented, could go a long way in improving the quality and standard of higher education.

8.64 The Committee felt that there was a need for instilling a sense of accountability in teaching community. The Committee found that the quality of many teachers, if not all, did not inspire confidence as scholars or researchers or as educationists. The Committee recommended to carry out some kind of performance-audit of the teachers and in that process, the students’ participation must also be ensured. The Committee strongly felt that the conditions of service, remuneration and career advancement of the teachers be linked with their overall performance.

8.65 The Committee was of the opinion that examination reforms be carried out so that “learning by rot” is replaced by “learning for joy”. The Committee strongly felt that semester system should be introduced instead of the one-time final examination. The advantage of the semester system was that assessment of student performance becomes a continuous and integral part of the teaching-learning process. Also, a mechanism for joint conferring of degree by the university as well as colleges concerned would make colleges more responsible as their name would also appear on the degree.

Assessment and Accreditation

8.66 A major weakness in the existing institutional assessment, the Committee noted, is that while it assessed the performance of the university or colleges as a whole; it did not do it Department-wise. What was known to the people was the grades and stars, which signify only averages. Academic performance of a university, in fact, was mostly department- specific. As a result, weaker ones were not exposed. Therefore, the idea of grouping them together for assessment, the Committee felt, needed to be reconsidered. The Committee recommended that the NAAC should start accrediting individual departments also of a university in addition to its overall grading, at the earliest. 8.67 The Committee was informed that accreditation being voluntary, many institutions that have secured accreditation may not turn up for re-accreditation after five years and may still continue to use the grade obtained earlier. Others do not turn up for accreditation at all. The Committee was aware that it would be difficult to enforce, if accreditation was made mandatory. The Committee proposed, as incentive for this purpose, that the accreditation must be linked with the grants or special assistance/recognition by the UGC and other bodies so that institutions turn up for accreditation. In USA, the Committee learnt, federal grants were available only to the accredited institutions.

8.68 The Committee was informed that the process and procedure of assessment and accreditation by the NAAC took a long time. It, therefore, emphasized the urgent need to identify efficient ways and effective strategies for expediting the assessment and accreditation by NAAC within a stipulated time frame.

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8.69 The Committee learnt that parameters adopted by the NAAC for evaluating the quality, although useful, left some scope for subjectivity in this exercise. The Committee recommended that this aspect should be re-examined with a view to making these parameters transparent and objective. 8.70 The Committee also underlined the greater need for evolving an internal self-regulatory quality assurance mechanism by the accredited institutions for maintaining and upgrading their quality level. This mechanism may also monitor both academic excellence as well as administrative efficiency of that institution. Periodic assessment of accredited institution should also be carried out regularly by the NAAC.

8.71 The Committee, in view of the emerging scenario, was of the opinion that a Government agency like NAAC for assessment of standards and accreditation of higher educational institutions may not have the desired credibility/acceptability to our higher education institutions at the international level. In fact, the need for a third party evaluation model with participation of all the stakeholders in higher education was underlined by some experts who appeared before the Committee. The Committee also felt that the establishment of an independent accreditation agency having regional offices in different areas of the country should also be considered. The industry should also have its participation in such a machinery. It should be, more or less, on the lines of quality assurance bodies like ISO and other rating agencies like CRISIL and ICRA.

National Board of Accreditation

8.72 The accreditation of technical institution was done by the National Board of Accreditation (NBA) established by AICTE. Although the procedure adopted by the NBA was comprehensive yet the accreditation was a time-taking process. The Committee felt that this process needed to be streamlined and accelerated to complete the backlog which is building up. The accreditation work needed to have a global interface which had become important in the emerging regime under WTO.

8.73 In view of mushrooming of private professional institutions in different parts of the country having little regard for the quality of teaching, infrastructure, etc. the Committee emphasized that every institution must be required to have its quality assessment done by the NBA within three years of their existence.

Governance and Management

8.74 With major interventions by the State for universalisation of education, latest being the SSA and MDM, the Committee felt, the secondary and then the higher secondary education was bound to face in the coming years unprecedented pressure of numbers as well as quality. Besides, the emerging new regime under GATS had also posed newer challenges before higher education. Such a situation called for a modern system of management for the higher education to enable India to compete and survive at the global level. The Committee felt that our universities and institutions of higher learning should be prepared to respond to such demands and challenges, and this cannot be done without making suitable changes in the system of governance and administrative structures of higher education in the country. 8.75 The Committee noted that management in education though not unknown in India, worked more or less, on old structure and concepts. It was a matter of concern that most of our universities have become merely examination boards for conducting examinations and conferring degrees, apart from the major work of granting affiliations. The Committee was dismayed to note that research as well as pedagogical innovations seemed to have taken a back seat in the universities. The Committee was of the considered opinion that in such a scenario what was needed was the greater autonomy, professionalism, transparency and accountability in the administration of higher education.

8.76 The Committee felt that it was high time that aspects like performance measurement, quality improvement, professional development, institutional and cultural change, resource mobilization, marketing of the intellectual products, public relations etc. were imbued in the practices of higher education management in our country.

8.77 The Committee believed that there was an urgent need to adopt best managerial practices in the structure of higher education institutions and universities, since these were no longer traditional institutions engaged only in creation, presentation and dissemination of knowledge. Rather they were progressively being called upon to involve themselves in a variety of problems and concerns of national development, especially in the social and economic spheres.

8.78 The Committee found that there was no effective planning body in universities both central as well as State. The Committee felt that was only by better planning and optimum use of resources that universities can improve their efficiency and can excel. It was of the opinion that proper strategic planning keeping in view the priorities and options available be adopted in the planning activities of the universities.

8.79 The Committee was also of the view that autonomy to the universities be made inviolable because it was, the life-

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breath to intellectual and academic initiatives and innovations. This autonomy, however, should not lead to autocracy and it must be ensured that academic bodies were kept away from any kind of interference, political, bureaucratic and any other. Views of academicians should have effective say in the management of higher education.

8.80 The Committee also recommended to ensure that academic decision in the institutions of higher learning is taken on merit and the government control must be reduced. Any outside interference in appointments of university teachers and administrators should be totally avoided. Direct interference of Finance Department in financial management of the universities must also be avoided as it proves to be counterproductive.

8.81 The Committee was informed that instances of uneasy relationship between various bodies, particularly the Academic Council and the Executive Council in the universities are not very uncommon. This, the Committee felt, prepares grounds for internal bickering and outside interference that ultimately vitiates the academic atmosphere in the campuses. All possible measures be taken for avoiding such situations.

8.82 The Committee was of the considered opinion that the role of a Vice-Chancellor in a university system was very crucial. In today’s complex university environment, the person to be appointed as Vice-Chancellor must be the one who is not only an academic leader but also trained in sound management practices. The Committee during its visit to IIM, Ahmedabad came to know that the Institute was running an orientation programme for the CBSE school Principals. The Committee was of the opinion that all the IIMs may be requested to develop and run suitable modules for the orientation and refresher courses for the Vice-Chancellors and Registrars of the universities as also for the heads of other institutions of higher learning. The Committee also emphasized the need for running such programmes in education management specially designed for the Government-officials responsible for implementing/supervising primary, secondary and higher education.

8.83 The Committee took note of the fact that there were a number of regulatory bodies like the UGC, ICAR, AICTE, MCI, NCTE concerning various areas of higher education. These bodies fall under different Ministries/Departments. It was argued before the Committee that the existence of various regulatory bodies not only made the system complex, but also gave it a fragmented character. The Committee, therefore, recommended that some kind of coordinating mechanism at the national level be put in place in the best interest of efficiency and effectiveness. A Board of Higher Education at national level for the purpose as visualized by the NPE 1986, could not be set up so far, for the reasons not known to the Committee. The Committee recommended that the Union Ministry of Human Resource Development initiate and coordinate with other Ministries like Agriculture, Health, Law and Finance to create a National Apex body for coordination among the various regulatory agencies. 8.84 Most of those who gave input to the Committee, verbal or written, mentioned about the cumbersome procedure and large scale corruption prevailing in the regulatory bodies mentioned above. The Committee while appreciating the work being done by these bodies, took such allegations seriously. Besides, the procedure for granting necessary clearances, etc. needed to be streamlined and made easier so that institutions/individuals did not feel deterred to approach these bodies. In view of increasing private participation in technical, medical and management education, these bodies needed to be made more alert, transparent and pro-active in performing their mandate. Their regional offices needed to be increased and made more responsive and efficient. Cases of corruption, deliberate delay, etc. must be dealt with sternly to establish credibility of these bodies.

8.85 Besides, there was no systematic planning and objective statewide assessments of demands and needed for higher education institutions and facilities. The Committee was, therefore, of the view that a state level mechanism – Higher Education Council as is functioning in some States, be put in place for coordinated development of higher education in all the States.

8.86 The Committee was informed that many a time, it had been experienced that University Acts in different States had provisions which were no longer relevant or were not keeping with the emerging challenges. The Committee recommended that Ministry of Human Resource Development should advise the State governments to review, from time to time, their University Acts and amend them in the light of new requirements and challenges being faced by the universities. UGC must take a lead in this exercise. 8.87 The Committee was also of the opinion that for good governance, there was an urgent need for the use of Management Information System in the universities. The Committee noted that majority of the universities had done it in reference to examination and general administration. However academic governance had not been covered under this. The Committee desired that academic governance be also brought in the Management Information System.

8.88 The Committee was of considered view that system of micro-management be given up and structures of

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governance outside universities also need reform. The Committee strongly felt that the internal management of institutions needed to be strengthened. More autonomy and greater authority to the head of institutions may also be given. There was a need to create a legal and conducive environment to initiate changes at the institutional level. It also needed to be underlined that the government worked as a facilitator rather than controller in the affairs of institutions of higher learning.

Funding

8.89 The Committee recalled that the Education Commission (1964-66) had strongly argued for devoting 6 per cent of the GDP to education which was reiterated by National Policy on Education, 1968 also. The NCMP had also promised this target. However, the goal of allocating 6 per cent of the GDP to education, in Committee’s view, had since remained merely an ambition than a realized commitment. While, only 4 per cent of the GNP was currently being spent on education, 0.4 per cent of GNP was being spent on higher education.

8.90 The Committee was of the view that the declining public finances for higher education coupled with the inflation and increase in the number of students aspiring for it, severely impair its growth, both quantitative as well as qualitative. And this was what had happened in our country. Reduction in expenditure on higher education, in fact, had affected not only recruitment of the teachers and creation of physical infrastructure but had also restricted to a great deal access to higher education particularly, by the poor people. The Committee felt that for the economic and technological progress of a country in this era of intense global competition, the country can ill-afford to ignore the higher education sector. It was argued before the Committee that lately, we have witnessed shifting of emphasis from higher education to primary education. The Committee was of the considered opinion that while universalizing primary education was the constitutional mandate, the higher education also needed to be supported by increased allocations in the coming years, was India to provide higher education of world class standard. 8.91 The Committee was aware of the resource constraints both with the Central and State Governments which cannot fill the gap between the supply and demand of the higher education sector. The Committee, therefore, was of the opinion that new sources of financing higher education have to be found for bridging this gap.

8.92 In the light of this, the Committee felt that mobilizing resources from non-government sources had become imperative now, not only to sustain the system of higher education at its present level but also for its further expansion both in its qualitative as well as quantitative dimensions. 8.93 An estimate put this demand at Rs. 3,400 crores for the remaining period of Tenth Plan. Managing such a huge sum was an uphill task. That can be achieved inter alia by promoting distance education, private participation and cost recovery methods. Besides, the universities needed to recognize the importance of helping themselves through their internal resource generation. The Committee also felt that Income Tax concessions can be given to philanthropists and to the community, should they invest in higher education.

8.94 The need for the cost recovery in higher education to fight the fiscal crunch in system was emphasized before the Committee. Cost-recovery, according to the Committee, would imply among others, a reduction in subsidies to higher education. That, the Committee felt, would shift the financial burden either to the beneficiaries (students) or to their users (employers). Student loans, graduate tax, enhancing fees and education cess were some other suggestions made in this regard.

Student Fees

8.95 The Tenth Five-Year Plan had emphasized the shift of resources from higher to primary education leaving thereby lesser funds for the former. Besides, due to increasing enrolment at upper primary and secondary levels, the pressure on higher education is likely to increase manifold in coming years. In such a situation, the Committee felt that it was high time that the universities made greater efforts to supplement their resources by generating their own resources, apart from what they may be getting from the UGC and the government. The industry-academia interface, the Committee felt, can be valuable source of resource mobilization, relevant curricula, R&D, practical training including employment of our graduates.

8.96 The Committee was fully aware of the implications of hike in fee paid by students, as it might restrict the access to the higher education. There was a possibility that beneficiaries, particularly from vulnerable groups, social and economic, would found it difficult to afford the higher education affecting thereby their upward mobility adversely. The Committee, therefore, felt that raising of fee and other charges should be considered only after examining its social and economic implications on the poor people. The Committee, therefore, recommended that the Government should emphasize on other options also. If the raise in the fee becomes unavoidable, it must be gradual and supplemented/supported by other assistance.

8.97 The Committee at the same time was of the opinion that it was not prudent to charge same fees from all students,

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irrespective of their socio-economic status. It was true that the daily pocket-expenses of some students were much more than the fee they pay per month. It was an anomaly. Therefore, there was urgent need for having a rational and just policy in this regard. Meritorious students coming from weaker sections of the society need to be financially supported through effective mechanisms so that their inability to afford the cost of education does not deprive them of higher education. Therefore, provision of adequate and liberal free-ships and merit-cum-means scholarships to the students coming from the disadvantaged groups was considered imperative.

8.98 What was a matter of concern to the Committee was the high fee structure of private colleges/universities. The Committee emphasized that we must keep in mind the social and economic milieu of the students while deciding fee and other charges. The private institutions particularly unaided/self-financing colleges must ensure that education was not made unaffordable to poor and meritorious student. The Committee felt that a suitable formula for fixing/regulating fees in private institutions of higher learning needed to be worked out in consultation and agreement with their management. The Committee notes that Courts had already suggested some mechanism in this regard.

8.99 The Committee appreciated the contribution of unaided institutions in supplementing the efforts and resources of the governments in providing higher education. While working out any formula for this purpose, their interest needed also to be kept in mind for avoiding the risk of losing this option. 8.100 The Committee was also of firm belief that the universities' fees be restructured and the UGC may bring necessary modifications in its formula for computing grants, which at present did not adjust the fees for capital expenditure.

Student Loan

8.101 Student loan was envisaged by some as one of the means to mobilize resources for higher education. It was argued that such a loan would enable those meritorious students whose parents were not in a position to afford higher education. The Committee felt that one of the crucial aspects that was overlooked was that the student loan shifted the burden of higher education from society to the beneficiary under the scheme, individual students had to repay the loan themselves. The Committee was, therefore, of the view that the student loan programme would not be very popular as it was fraught with many risks. There is a high possibility that student loans would act as disincentives for students from low- income families willing to go for higher education. The Committee was particularly apprehensive of student loan for women, which might be regarded as negative dowry in the Indian society.

8.102 The Committee noted that various Commercial Banks charged prohibitive rates of interest and demand collateral guarantee, etc., which rendered it highly unattractive proposition. This scheme did not provide for any exemptions for the weaker sections in terms of security, guarantee, repayment period, repayment as per earnings, waivers, etc.

8.103 Further, the high administrative cost of the loan makes the scheme susceptible to failure. The Committee recommended that the Government must take necessary measures to study the financial viability of the programme to make it a success and a convenient alternative to public finances. 8.104 The Committee also felt that a student loan could create two types of distortions. First, only those courses, which enjoyed a premium market, would be preferred, both by loan providers and borrowers. The professional courses might get priority at the expense of others, which were important from the point of social and national concerns but did not enjoy a premium in the labour market. Second, the educational credit market in India was not well developed. It was recommended that necessary correctives be initiated to take care of distortions and adverse implications of the student loan by providing some kind of shield to the poor and meritorious students. The Committee also recommended that setting up of an Educational Development Bank of India as suggested from time to time for helping financially poor and needy students should be considered urgently.

Graduate/Exit Tax

8.105 Other measures suggested to the Committee to recover the cost of higher education were what may be called as “graduate tax”, “exit tax”, “education cess” etc. Such taxes were already in vogue in some countries. Graduate tax is levied on those who use the services of skilled and trained manpower. An employer is required to pay an annual tax to the government for each graduate recruited by it. The major drawback, the Committee felt, with the scheme was that it might lead to substitution of university graduates by lower level educated manpower. Nevertheless, the Committee felt, that taxing employers based on the type and number of manpower they use had a good rationale and should be considered seriously for implementation. 8.106 Imposition of Exit Tax on our students immigrating to other countries for taking up jobs after obtaining their degrees, particularly from our premier institutions which are run on massive State subsidies, was suggested by some experts who appeared before the Committee. They argued that the expenditure incurred on those students go without any return to the country. The Committee desired to point out the changed perception about the traditional brain-drain theory in the wake

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of globalization which recognized certain indirect benefits – developing one’s skill further, remittances in foreign exchange, etc. The Committee was of the view that students passing out from premier Government institutions got the best education on payment of nominal fees. In the event of their leaving the country for good, imposition of Exit Tax on them must be considered. The Committee, therefore, recommended that feasibility of the proposal needed to be examined and implemented in the larger interest of the country.

8.107 As regards the education cess for higher education, the Committee felt that the proposal would not be conducive in the present scenario when people are already paying another cess for primary education.

Private Initiative in Higher Education

8.108 The Committee noted that private participation in higher education was not new in India. Colleges set up by public spirited/philanthropic persons had been there for a long time. Most of these colleges, however, enjoyed large-scale grants from the public exchequer. The public funding, the Committee noted, had its own constraints and the State support alone would not be sufficient to meet the requirement in this area. In the long run, therefore, the involvement of private initiatives became imperative to meet the challenging demands of expansion and diversification of higher education in India. However, the Committee was at the same time fully aware of the adverse impact of privatization of education; it might lead to profit orientation and commercialization of higher education. As had been seen in a few cases recently, there was an attempt to full cost recovery or more from students. As a result, only those who were able to pay exorbitant amount of fees are able to go, particularly for engineering, medical and management education and this was certainly an unacceptable situation.

8.109 The Committee understood that a high level of public subsidy reduced the scope for the Government to mobilize additional resources. It was also of the opinion that only the State can have long-term perspective and focus on social concerns in promoting higher education. The State, therefore, could not shy away from investing in higher education, as it was a long-term investment for the overall economic development of the country and its people. Only State could invest in basic research and development without any profit motive in financial terms. The Committee, therefore, was of the view that until the private participation and the concerns associated with it were taken care of, necessary legal framework were put in place and adequate safeguards were provided for protecting interest of vulnerable sections of our society, the Government must continue to provide necessary resources for the purpose. Any indiscriminate reduction in subsidies would leave the sector to the vagaries of market forces. The Committee, therefore, called upon the Planning Commission, Ministry of Finance and Department to spare adequate funds for higher education.

Private Universities

8.110 The Committee was concerned over the fact that neither there was any regulatory mechanism in the States nor was there any policy/legislation at Centre for regulation and control of private universities in India. As a result, it was very difficult to ensure transparency and accountability in the working of private universities. Regulatory bodies like UGC, AICTE, MCI, DCI, etc., have proved to be ineffective in this case. The Committee in the light of these developments was of the considered opinion that there was an urgent need for proper policy and mechanism to regulate aspects such as admission, fee structure, quality control, teachers’ qualifications, physical infrastructure, etc. of the private universities. The regulatory mechanism must see that higher education was not commercialized to the detriment of the students.

8.111 The Committee was cautioned that some corporate entities might try to open private universities to enhance their profits under that garb. The possibility of a company opening a private university for the purpose of creating an affiliating body to get all frivolous or sub-standard courses offered by it affiliated, cannot be ruled out. The Committee, therefore, desired that the Government should bring a comprehensive legislation for providing effective machinery to ensure that only genuine and quality private providers of higher education services remain in the field.

Unaided Professionals Institutions

8.112 The Committee noted that self-financing institutions were functioning under various authorities, State as well as Central as education is a Concurrent Subject. As a result, we have different syllabi, admission and examination systems throughout the country. The existing system of diverse regulatory authorities, the Committee felt, was creating avoidable problems in this regard. This situation gave rise to confusion among the students which undermined the delicate balance between merit, affordability and equity in professional education. The Committee was of the view that this state-of-affairs was mainly due to absence of a national policy in respect of the self-financing professional institutions. This called for a unified control and regulatory mechanism, having regard to our federal character, for looking after different aspects of their functioning. The Committee, therefore, emphasized the need for a transparent national framework for the regulation &

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nurturing of such institutions. There was an urgent need for rationalizing the existing plethora of admission tests, which are creating lot of problems for the students. The admission to these institutions should be on merit in which total transparency needs to be maintained. Besides, there was also an urgent need to provide a legal mechanism for regulating/fixing fees and management and other quota with a view to removing any uncertainty in this regard.

8.113 While doing so, we must give due regard to views/concerns of the people opening these institutions. Otherwise, good spirited people would feel discouraged to come forward in this regard.

8.114 Steps should be taken to ensure that these institutions are properly assessed and accredited by the respective agencies. Furthermore, the private institutions be rated by independent rating agencies and their ratings be disseminated through print and internet across the country. The Committee was of the considered view that such a publicly announced ratings would help the students in selecting an institution to enroll in; the institutions in upgrading its standards; and the employers in assessing the quality of students graduating from these institutions. The Committee also desired that all such educational institutions need to come out with their Annual Reports containing necessary details about the courses offered, quality of faculty, teaching, student strength, examination results, infrastructure and facilities available, the corpus available and the source of funding, accreditation ratings, etc.

8.115 These institutions, particularly in the field of engineering and management need to have effective partnership with trade and industry to ensure that the product emerging out of these institutions would be better suited for the job which they would eventually take up. Such a partnership, the Committee felt, shall not only make the curricula more relevant and contextual, increase the employability of students and would also enable the sponsors to get some resources.

Globalisation and Liberalisation

GATS and Higher Education

8.116 It was argued before the Committee that the liberalization allowed in the area like allowing 100 per cent FDI on automatic route and permitting foreign participation in higher education was essentially a domestic decision and had not yet been included under the obligations of GATS since India was yet to commit its education services under GATS framework. The Committee appreciated that the liberalization allowed was basically due to our capacity constraints in higher education. However, the Committee was concerned about the less reputed, fly-by-night operators who lure the gullible students through their tall claims in glossy advertisements making away with their hard-earned money and spoiling their future. The Committee was of the strong opinion that the capacity constraints cannot be an excuse for the survival of sub-standard institutions. The Government should immediately come up with a proper supportive regulatory mechanism with a view to ensuring that only accredited and known foreign institutions enter the Indian market and by creating a level playing field for foreign and domestic institutions. The Committee felt that by putting such a mechanism in place, the country would be better placed to schedule education services under GATS.

8.117 The Committee was of the considered view that markets and globalisation represent the key where opportunity and danger exists and both are closely intertwined. While the importance of competition and striving to do better are the pluses, motivation of profit only is the minus. The Committee felt that the country should brace itself up to take the maximum advantage of the opportunities opening with the globalisation of education services. The Government was advised to adopt an aggressive and pro-active, rather than defensive approach on both import as well as export fronts to take the benefit under GATS and concomitant process of liberalization of higher education. The Committee noted that Indian export of higher education to other countries was very low as compared to its import. Our students were queuing up to go for higher studies to countries like US, UK, Canada and Australia in large numbers. In US, they formed the largest group.

8.118 The Committee noted that the Government had constituted a Committee for Promotion of Indian Education Abroad (COPIE) with the twin objectives of promoting Indian education abroad and regulating operations of foreign educational institutions in India. The Committee desired that the COPIE took steps to safeguard the larger national interest and the interest of the student community in particular. Foreign Universities

8.119 The Committee noted that the existing laws and regulations of the country did not provide any statutory mechanism for regulating the operation of such foreign institutions in this country. It was only the AICTE that had come up with a notification that carried revised regulations for the entry and operation of foreign universities/institutions imparting technical education in India. The Committee was aware that the C. N. R. Rao Committee had been set up by the Government for reviewing this aspect. The Committee noted that the Rao Committee was yet to submit its reports. The Committee only hoped that the Government would take necessary interim measures in this regard before the Rao Committee’s recommendations were considered and accepted.

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8.120 The Committee was perturbed to note that there was still no authentic database on operation of foreign educational institutions in the country, which was a grim reminder of our concern for higher education and our preparedness towards maximizing the fruits of liberalization in education sector. 8.121 According to the information compiled by the Association of Indian Universities during the year 2000 on the basis of advertisements appearing in the Indian newspapers, 144 foreign universities and colleges/institutions had been offering various courses of study to the Indian students. Out of them, 117 offered programmes on their home campuses and the remaining 27 were conducting programmes in India through their Indian partners. The largest number of these institutions was from UK and Australia followed by USA and Canada and New Zealand. The remaining 14 institutions were from other countries like Bulgaria, Cyprus, Hong-Kong, France Ireland, Mauritius, Nepal, Romania, Russia and Switzerland. The Committee was astonished to note that over 100 foreign institutions were offering different courses without any regulation on their operations, quality of education, management, etc. The Committee noted that the AICTE regulation that permits the entry of a foreign university/institution either directly or through collaborative arrangement with an Indian university/institution extended only to technical education. The law was silent on foreign university/institution offering non- technical education including medicine, law, arts, sciences, social sciences, etc. The Committee felt that this gap needed to be filled at the earliest. It was incumbent upon the Government and related regulatory bodies like the UGC, the MCI, etc. to come out with a definite policy/legislation for regulating the entry and operation of foreign university/institution as soon as possible. Only good institutions, which were accredited in their countries should be allowed to operate and they needed to get clearance from respective authorities. Fee, etc. charged by these foreign institutions also needed to be regulated.

8.122 The Committee noted the possibilities of some of these institutions of doubtful credibility hoodwinking the gullible students cannot be completely ruled out. The Committee, therefore, desired that an inquiry into the antecedents and credentials of these institutions be thoroughly made and if any of them are found to be of fake/fictitious nature, strict action be taken against it and due publicity be given against them. 8.123 The Committee was also of the opinion that permission to foreign university/institution to operate in the country should be granted with caution as there is every possibility that even a good foreign university/institution could adopt double standards in quality so much so that the learning that they provide at their home countries was of high standard while the distance learning in developing countries by them was sub-standard. The Committee recommended the establishment of a body that oversees all the activities of a foreign university/institution and allows only the bona fides to take a plunge in the Indian market having all sensitivities to the moorings and culture of the country.

State Universities

8.124 The Committee during its visits to some of the State universities found that they were facing serious financial crunch mainly due to inadequate allocation by their respective State Governments. The Committee noted that for every Rs. 100 - Rs. 70 went to salaries & superannuation payments; of the remaining Rs. 30; Rs. 15 went into pre-emptive claims like rent, taxes, electricity bills, examination expenses and so on. Thus, precious little was left for maintenance, let alone development. As a result, libraries & laboratories languished and quality of education was severely affected. This grim scenario was further aggravated with the UGC ceiling of Plan expenditure to mere 3% of the total allocation. The Committee felt that this ceiling on Plan expenditure was really unrealistic and it desired that the UGC should increase this ceiling so that development of infrastructure in the universities could be taken up with a view to improving the quality of our institutions of higher learning. The Committee also noted that for corpus creation, the universities are offered to raise one crore to get an additional grant of the same amount from the UGC with the condition to use the interest on that corpus fund for developmental activities. With ever decreasing decline in the interest rate, this fund also was shrinking day by day.

8.125 The Committee expressed its concern about large number of vacancies at different levels in teaching community. Presently, there was a serious shortage of faculty at the current level of demands. The Committee found that most of the State universities and colleges were ill equipped lacking required infrastructure and trained teachers. The Committee viewed with serious concern the status of vacant teaching posts. As per the information available with the Committee, in the 16 Central universities, there were 1988 vacancies as on 31-03-2005, with the Banaras Hindu University and Delhi University having as many as 687 and 396 vacancies respectively. Situation was also far from satisfactory in JNU, Visva Bharti and Mizoram University. The Committee observed that out of total vacant 1988 posts, 1056 posts belong to Lecturer category. The Committee failed to understand the reasons for such a large number of posts of Lecturer lying vacant which was the entry point to a university. The Committee apprehended that situation might be worse in State universities. The Committee was of the view that drastic steps needed to be taken so that students were not deprived of proper guidance.

8.126 The Committee at the same time felt that we need not only more qualified but also highly motivated teachers. In order to attract/retain them, we have to supplement their salaries with an attractive package of perquisites and support for academic activities coupled with appropriate recognition with outstanding achievement.

8.127 The Committee’s attention was also drawn towards the need for relaxing the requirement of NET qualification for a person to be appointed as a Lecturer in a university/college because this sometimes prohibited the qualified and outstanding

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persons from being inducted in the teaching community, if they have not cleared the NET. The Committee, therefore, recommended that this issue needed to be considered by the Department and the UGC in a positive spirit.

Fake Universities/Institutions 8.128 As per the information available with the Committee, there were 21 fake universities/institutions located in different parts of the country, UP having the highest number of such universities (8), closely followed by Delhi (7). The Committee took a serious view that these fake universities continue to operate with impunity cheating the innocent students. Government seemed to be totally helpless. Section 22 of the UGC Act, 1956 provides that the right to conferring/granting degrees can be exercised only by a university established or incorporated by or under a Central Act, Provincial Act or a State Act or an institution specially empowered by an Act of Parliament to confer or grant degrees. Section 23 further provides that word ‘university’ can be associated only with those bodies covered under Section 22. The Committee noted that as per Section 24, a penalty of Rs. 1000/- was liable to be imposed in case of violation of these provisions. This mild penalty had failed to make any impact for obvious reasons. The Committee had been given to understand that State Governments were being regularly requested by UGC to institute criminal proceedings against fake institutions. Even UGC had also decided to take action. The Committee desired, to point out that criminal proceedings would not make any difference in the status of such institutions due to the continuation of very mild penalty provisions.

8.129 The Committee understood that pursuant to the recommendations of the Committee on Petitions (Lok Sabha), a Bill was introduced in the Rajya Sabha in December, 1991 providing for imprisonment upto six months and a fine of not less than Rs. 1 lakh which may extend to Rs. 10 lakhs. This Bill was subsequently withdrawn on 1st June, 1995. Thereafter, no further project seemed to have been made on such a vital issue. The Committee desired to emphasize that urgent steps needed to be taken for bringing a legislation providing for more stringent penalties for running fake universities.

Role of the UGC

8.130 The UGC was established to promote, coordinate and determine standards in respect of higher education in the country. The Committee was of the opinion that the UGC had not been able to live upto the expectations. It had become unequal to the task and challenges before it. It was now functioning mainly as grant disbursing body than a body for the promotion of teaching/research and maintenance of standards in higher education. The institutions of higher learning in India had become just degree conferring bodies than academic and intellectual entity.

8.131 The Committee was perturbed to see that after nearly 50 years of the UGC’s existence, there was no set of rules regulating the establishment of sub-standard colleges. The Committee was of the opinion that the UGC should not act as a Department of the Government but should act as a professional body in which the university interests should be fully represented. 8.132 The Committee was informed that the UGC did not have the power to de-recognize degrees awarded by any university. Absence of such power had made it difficult for the UGC to ensure compliance with its priorities and directives. The Committee, however, was of the opinion that the so-called fitness-to-function-norms for the universities be defined more precisely as this will take care of the unworthy universities even without taking on the power of de-recognising a degree.

8.133 The Committee recommended a national level body of higher education be established to advise the Government on policy matters, coordinate the activities of the various professional bodies, encourage interface among different areas, allocate resources in terms of national needs and manpower planning, and establish and manage common infrastructure and institutions and primacy of professional opinion over other considerations be ensured.

8.134 The Committee noted that not only are there disputes about the jurisdiction of the various regulatory bodies, the fact remained that the Centre is cagey about asserting its rights more than are minimally necessary. Example of Chhattisgarh are there. A situation had arisen where the Centre was feeling outmaneuvered by the initiatives being taken by certain States. Foreign institutions too had penetrated the Indian market quite extensively and the UGC was unable to do anything than being a helpless spectator. The Committee strongly felt that the UGC even in the existing mandate under the UGC Act could have adopted a number of measures for regulating mushrooming of sub-standard private/foreign institutions.

8.135 The Committee desired that prescription of minimum standards of fitness for admission to universities or to technical and professional institutions as well as direct inspection of colleges and other institutions in order to maintain standards be undertaken by the UGC. The Committee was of the view that the UGC should put in place a better system of monitoring and take decisions on the basis of feedback obtained from it. Throughout its existence, UGC had not even once insisted that State Government must prepare a Plan of Action in respect of both universities and colleges. The UGC could ask the State Governments to send it a plan of development for higher education every year. Thereafter, a meeting could be fixed at the UGC Headquarters. The Committee felt that the UGC’s interaction with States should be more frequent so that

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there was no space of doubts in anyone’s mind about the other’s intention. It was suggested that State Councils of Higher Education be established for the purpose of interaction with the UGC.

8.136 It was suggested that full-time members of the UGC to look after different portfolios falling under higher education be provided for and their numbers be increased in comparison to the present system, which permit for only a full-time Vice- Chairman to assist the Chairman. Further, these members should be chosen from the top three-four experts in a particular field.

8.137 The Committee was of the opinion that the existing structure and functioning of the UGC needed a re-look as the education scenario had changed drastically. The Committee emphasized the need for revisiting the UGC Act and amending it suitably. The Committee noted that in 1998, a Committee was appointed by the Ministry of HRD to examine amendments to the UGC Act. Report of the Committee was submitted to the Ministry of HRD but Amendment Bill was yet to be brought before Parliament. Even the Committee on Autonomy of Higher Education Institutions, recently constituted by the Central Advisory Board of Education (CABE), had also desired for setting up a task force to re-examine the existing UGC Act to provide for incorporation of new provisions to suit the emerging concerns and realities of higher education and to make the UGC Act a more significant body. The Committee felt that the Amendment Bill to amend the UGC Act be brought in after consulting the expert opinion for making the UGC a purposeful and relevant body in the existing conditions. The Committee also felt that it was a high time to rechristen the UGC to project it mainly as a developmental body rather than as a grant disbursal one. It might, therefore, be renamed as Higher Education Development Commission or any other similar name which was in keeping with the changed dimensions in this area.

Conclusion

8.138 In view of the new situations and the resulting challenges before higher education in the emerging scenario, the need for preparing ourselves to face them successfully brooks no delay. India would have to take various measures, legal, institutional, financial and others well in time so that we are not left behind in this fast changing world. For this, there was an urgent need for reform and revitalization of education sector to make it relevant and suitable to the emerging socio-economic and other realities. The National Policy on Education that was formulated nearly two decades ago even before the process of liberalization had begun, the Committee felt, needed to be revisited with a view to making it more forward-looking and vibrant. The new concerns also would have to be included in it. Besides, the existing legal framework in the higher education sector particularly, the UGC Act and the Acts of various State Universities also needed to be made more relevant and effective in the present context.

8.139 This Report, in fact, had attempted to suggest mechanisms/measures for tackling most of the problems and challenges, if not all, before higher education. The Committee was aware of the fact that doing all this would need huge amount of resources. And how to manage that resources, was a million dollar question today. To begin with, till the concerns relating to private funding were taken care of, the major share of the required money, the Committee felt, would have to be primarily provided by the government. As per an estimate, nearly 3400 crores of rupees would be required for improving the infrastructure in the existing universities, filling vacancies of the teachers, upgrading the libraries and laboratories, providing broadband connectivity as also for opening more universities in the coming years. The State universities and colleges also needed to be supported in a big way with a view to bring them at a particular standard. The Committee, therefore, was of the opinion that efforts should be made for mobilizing this amount for the higher education by the government, both Centre and State. This may certainly not be impossible to arrange the required resources, if the Planning Commission, Ministry of Finance, Department of Secondary and Higher Education sat together and applied their mind on this issue. This investment should not be a big price for the benefits that would accrue to the country. Socio-economic benefits of higher education are immense and radiate to various areas of life.

(b) 173rd Report

Budgetary Allocation

8.140 The trend of expenditure during the first four years of the Tenth Plan clearly indicated that the Department had been successful in optimum utilization of funds allocated in the elementary education sector, quantum increase in the allocation notwithstanding. However, the Committee was constrained to observe that the position with the entire Adult Education sector was different. The Department had not been able to sustain the level of expenditure, particularly during the last two years, i.e. 2004-05 and 2005-06, inspite of there being only a marginal increase. In fact, it would not be wrong to say that Adult Education sector appeared to be the worst affected during 2004-05. Less than 50% of the total outlay (Rs. 261.00 crore) for Adult Education had been spent upto December, 2005. During the first three quarters of the year upto December,

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2005, expenditure reported is Rs. 115.66 crore. The Committee was surprised to note that within a span of about one and a half month i.e. upto 17.2.2006, utilisation figures were Rs. 211.78 crore. The Committee could only conclude that different programmes of Adult Education were not being implemented as per the prescribed norms. One example would be sufficient to confirm the view. Under the scheme of `Literacy Campaigns and Operation Restoration’ expenditure reported upto December, 2005 was nil. However, by 17th February, 2006 implementing agencies could manage to incur an expenditure of Rs. 30.00 crore.

8.141 Twin problems of pending utilization certificates and unspent balances available with the implementing agencies continued to persist. The Committee had been observing that increase in the allocated funds had indirectly contributed in aggravating these two problem areas. The Committee had been given to understand that due to sustained efforts made by the Department, level of pending Utilization Certificates has been somewhat restricted. The Department had succeeded in extracting 471 UCs during the period from 1st April to 31st December, 2005. An amount of Rs. 3461.78 crores was still blocked as outstanding Utilization Certificates in respect of Grants/Loan released upto 31st March, 2004. However, no information had been provided by the Department about the amount parked as outstanding UCs for the year 2004-05 which must have increased further by the end of 2005-06. The Committee found this situation to be very alarming and strongly felt that urgent steps need to be taken to eliminate the pending UCs. At the same time, the Department should also take up with the concerned State Governments, the problems, if any being faced by them in timely submission of UCs.

8.142 The Committee noted that the total unspent balances with implementing agencies under different schemes as on 1.4.05 was Rs. 1,680.96 crore which increased to the tune of Rs. 3,310.29 crore within a span of six months, i.e., on 30.9.2005. What was more worrisome was that these unspent balances were available with implementing agencies other than State Governments/UTs, mainly in the voluntary sector. The Committee wondered about the efficacy of the monitoring mechanism, which was supposed to be activated right from the level of Centre to district/panchayat level. The Committee was of the firm opinion that remedial measures needed to be initiated without any further delay. The Committee also liked to be apprised about the latest details of Utilization Certificates and unspent balances scheme-wise and State wise.

Sarva Shiksha Abhiyan

8.143 The Committee had been given to understand that provision of State share by States had improved over the years. Presently, only Kerala (Rs. 21.67 crores), Manipur (Rs.2.07 crores) and Sikkim (Rs. 3.89 crore) had outstanding State share for 2004-05. The Committee liked to be apprised about the status of State share during 2005-06. The Committee also liked to be informed about the final decision of the Government in respect of provision of some relief to NE States and Sikkim in the percentage of their contribution to SSA.

8.144 The above details clearly indicated that the ground realities were varying from State to State about the actual status of utilization of SSA. The Committee was compelled to claim that unspent balances would be available in respect of other States/UTs also. If that be so, the Committee could only conclude that States/UTs had simply not succeeded in sustaining the expenditure level. The Committee could only hope that with the accounting procedure being streamlined and monitoring mechanism fully activated, status of fund utilization under SSA would improve.

8.145 The Committee noted that the Mid-Term Appraisal of the Tenth Plan by the Planning Commission indicated that some of the major States like U.P., Punjab, West Bengal, Orissa, Bihar and Jharkhand were experiencing a problem of resource absorption under SSA. The Department had informed that due to concerted efforts by State Governments and intensive monitoring and capacity building initiatives of the Central Government, the position of utilization of funds had improved and fund utilization upto December, 2005 by UP was 74%, Punjab was 55%, West Bengal was 65%, Orissa was 57 % and Jharkhand was 74%. The Committee was of the opinion that fund utilization by the Punjab, West Bengal and Orissa was still unsatisfactory. To this list State like Maharashtra may also be added which had utilized the funds to the tune of 50% only upto December, 2005. The Committee expressed its reservation against slow pace of implementation and utilization of funds. The Committee liked the Department to ensure timely utilization of funds at least by the third fiscal quarter and restrain itself from last minute rush in the utilization of funds that resulted in poor infrastructure and quality. The Committee hoped that the Department would take all possible steps to ensure allotment of land for schools in J&K, Nagaland and Andaman and Nicobar Islands and utilization of sanctioned amount for civil construction in these States by July during the year as promised by the Secretary before the Committee.

8.146 The Committee noted that utilization of funds under SSA was not commensurately reflected in the achievements made in respect of physical targets. The Committee failed to understand as to why the physical targets like construction of school buildings, additional classrooms, drinking water facilities, toilets, etc. were not completed despite one-third (34.21%) of the total outlay being assigned for civil works. In fact, a Work Bank- Harvard University study had found poor infrastructure to be one of the factors behind teacher absenteeism. The Committee felt that this may also be a factor for student drop-out.

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8.147 The Committee was of the firm view that alongwith the Central assistance being released, progress of achievement level of physical targets had to be vigorously pursued with special focus on States/UTs lagging behind. Both inherent drawbacks in the Scheme itself and lack of initiative on the part of implementing agencies had to be attended to at the highest level, if need was felt. Only then, it could be claimed that SSA had started achieving its goal of reaching to the neediest. The Committee understood that the targets for the year 2006-07 were being decided and would be finalized by the month of May, 2006 through the process of approval of Annual Work Plans of States/UTs by the Project Approval Board of SSA. The Committee felt that this exercise needed to be completed in the last quarter of previous year so that work starts from the first quarter of the next year itself.

8.148 The Committee was informed that due to delay in finalization of tender for free textbooks by the State Government, eligible students of Jharkhand were deprived of free textbooks. The Committee hoped that before the start of the next academic session, free textbooks would be available for the students. The Committee also recommended that the Department should pursue the fulfillment of this target with the concerned State Governments.

8.149 The Committee had been informed that there had been a decline in the number of out-of-school children since 2001 when Sarva Shiksha Abhiyan was launched. The Committee noted that all India sample survey of out of school children commissioned by the Ministry were conducted by the Social and Rural Research Institute in all the States and UTs during July to October, 2005. As per the survey, 8.09% children were out of school in the country. The Committee noted that the survey besides the normal children, had also assessed the disabled children. As per findings, 38.92% disabled children did not go to school. The Committee strongly felt that time had come when a serious attempt was made to bring the disabled children also in the mainstream. The Committee recommended that all inclusive education for disabled and differently abled children should become a focused component under SSA.

8.150 The fact that more than a crore (1,34,59,734) children in the age-group of 6-14 years were still reeling under the stigma of illiteracy was an area of great concern and the Department needed to brace itself to cover these left-outs. The Committee found that Bihar, Uttar Pradesh, West Bengal, Madhya Pradesh, Rajasthan and Jharkhand were still to go a long way to bring every child in school. The Committee recommended that the Department take up the matter with these States urgently and make special arrangements for education with them. In fact, the Committee desired that this special arrangement be made for all the twelve States where percentage of out of school children was more than the national level.

8.151 The Committee noted that the Department had targeted 48 districts with highest number of out of school children with specific interventions for the year 2006-07. The Committee appreciated this proposal of the Department and at the same time desired that the Department must come out with innovative techniques to ensure that once a child is enrolled, he does not drop out. The Department needed to take stock of the situation because it had been noticed by the Committee that though enrolment ratio in schools was quite impressive, drop-out rates were equally discouraging. Andhra Pradesh, Arunachal Pradesh, Assam, Bihar, Manipur, Meghalaya, Rajasthan, Sikkim and Tripura had higher drop-out rates (class 1-V) when compared with the All India average of 31.47 %. The Committee strongly felt that effective and urgent action had to be initiated to reduce the drop-out rates.

8.152 The Committee was of the view that States having the maximum number of out of school children and also having a higher drop out rate needed to be focussed more. The Committee noted that though the Mid-Day Meal was one of the major attraction for children and it had to some extent even increased the enrolment in the schools. But the SSA needed more interventions such as inclusion of sports as an integral part of the syllabus, so as to maintain the interest of children. That would not only make school attractive but also prepare the children psychologically as well as physically strong to feel motivated to go to schools. Another intervention, according to the Committee, should be to make anti-child labour campaign an integral part of SSA. The Committee felt that social mobilization programme to check child labour could help in withdrawing the children engaged as labourers to alternate sources of education. The INDUS project was a welcome step in this direction and the Committee appreciated the Department’s association with the project. The Committee opined that eradication of child labour should become one of the prominent objectives of SSA so as to ensure inclination of the society towards educational needs of the children. A step in this direction could be to work in coordination with the Ministries of Labour and Social Justice and Empowerment.

8.153 As per the national survey on “Learning Achievement of Students at the end of Class V” conducted by the NCERT in 2002, whose report showed that the mean achievement of students in Language, Mathematics and EVS at the national level was 58.57%, 46.51% and 50.30% respectively. The Committee found this mean achievement to be a cause of concern and felt that the Department needs to take care that the quality aspect should not be sacrificed in the race for achieving targets.

8.154 The Committee observed that under SSA there were already a number of components which took care of

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infrastructure to be in place at schools and also required number of teachers. The Committee would, however, like to point out lack of qualified teachers and also their low motivation level failed to attract and retain students. In service training at regular intervals could successfully fill this gap. More emphasis was required to be made on the training component under SSA. The Committee understood that the Department with the help of NCERT had recently operationalised a quarterly quality monitoring system. The Committee felt that with all these measures, things would improve. Perhaps what was required then has an element of accountability and sense of involvement by all concerned.

8.155 Teachers at primary and upper primary level under SSA are supposed to possess NCERT prescribed qualifications. However, ground realities seem to be quite different. The Committee had been observing that in order to meet the increasing demand of teachers, they were being recruited on temporary basis. In some States, such teachers had gone to Courts. The Committee was of the firm opinion that alongwith the fulfillment of targets, quality aspect also needed to be given its due importance. The Committee did not share the Department’s explanation that a two-month in-service training was sufficient to enable these para-teachers qualified enough to undertake the task of teaching. The Committee recommended that the Department take initiatives to stop this type of ad-hocism. The Committee opined that in the event of unavoidable appointment of para-teachers it should be ensured that they are qualified to be appointed as teachers. The Committee recommended that such teachers may be given better emoluments. It would not be out of context to point out that since Education is on Concurrent List, the Centre can prevail upon the States in the larger interest of education and the society.

National Programme of Nutritional Support to Primary Education (Mid-Day Meal Scheme)

8.156 The Committee welcomed the enhancement in cooking cost as that would bring an improvement in the variety and quality of the food served. However, the Committee had its doubts about the matching contribution required from the States/UTs. The Committee desired that the Department should prevail upon all the States/UTs to give their share towards cooking cost. Further, the Committee was a little worried about the impact this little enhancement would have on the variety and quality of the meal served. The Committee was of the opinion that even the increased Central assistance towards cooking cost was not adequate. The Committee understood that there are other Ministries/Departments that were implementing other schemes for providing nutritious food to our children. The Committee recommended that convergence and close coordination may be brought among these schemes so as to have the best results.

8.157 The Committee however, was apprehensive of the quality, variety and hygiene of the food served under the scheme in view of the fact that there were many reported and unreported cases of children falling ill after taking their mid- day meal. Such incidents took away the spirit out of the scheme. On a specific query about cases of irregularity notice in MDM scheme, the Department had given details of instances which had taken place in some States during 2005-06. All these cases indicated diversion misuse of foodgrains by those very authorities which were responsible for implementation of the scheme. The Committee liked to have full details of all these cases alongwith the follow up action taken thereon. The Committee wondered, that inspite of such well-planned monitoring mechanism, how such instances could have taken place. The Committee could only conclude that monitoring and surprise inspections needed to be done vigorously. The Department needed to be more proactive instead of acting only after receipt of complaints.

8.158 Committee’s attention had been drawn by a survey conducted by the National Institute of Nutrition, Hyderabad which had pointed out that the growth of 50% children was adversely affected due to poor level of nutrition in the MDM served in the country. The Committee recommended that the Department take earnest measure to provide wholesome meal. For the purpose, the Committee felt that good quality cereal be released from the FCI godowns and this should be supplemented by fruits and vitamin and iron tablets.

8.159 The Committee was of the view that the community participation was not very effective or else the meal served under scheme would not have suffered in quality, variety and hygiene or there would have been no misappropriation. There was also a feeling in the Committee that education had taken a backseat in schools serving mid-day meal. The Committee had been given to understand that the involvement of teachers in preparation and distribution of meal had adversely affected the quality of education. The guidelines clearly specify that a teacher’s main responsibility is to teach and not engage themselves in cooking process. In fact there is a provision for engaging workers for the cooking of meals. The Committee regretted that the remuneration to these workers were not only low but also varied from place to place. Even this meager amount was not given regularly. The Committee therefore, recommended upward revision of wages/remuneration for those who were cooking food and also to ensure uniform rate. Strict monitoring of the guidelines was the need of hour.

8.160 It had been noted that attendance in the schools drops drastically during post-lunch session. This, the Committee, felt was a big challenge to the entire objective of the programme and no intervention except vibrant community participation could check this malice. The Committee strongly urged the Department to take the matter with States which could actually ensure community participation through Panchayat in true sense. At the same time, the Department was advised to carry out

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a scientific assessment of community participation in the Mid-Day Meal Scheme.

Strengthening of Teachers Education

8.161 This situation, the Committee felt, was more worrisome because the DIETs had also been assigned the role of monitoring the implementation of the MDM scheme. The fact that many districts in poorly performing States still did not have DIET would have an adverse impact on the monitoring activity in the district. The Committee noted that in many DIETs, vacancies were there which affect various training programme. The Committee liked to draw the attention of the Department to the observation of Planning Commission made in the Mid Term Appraisal of Tenth Plan. “The institutional support organizations for teacher education and development of curriculums are closely linked with the learning achievements of children and performance of teachers. Teachers vacancies at all levels should be filled up urgently and there should be advance planning for future requirement too.”

8.162 The very fact that the vacancy position of DIETs was now being reviewed in national meeting of Education Secretaries and meetings of Teacher Education Approval Board indicated that the position was quite grim. The Committee was disturbed to note that expeditious releases of Central assistance towards salaries was being ensured through regular meetings of TEAB. The Committee liked to have full details about existing vacancies in DIETs, since when and number of vacancies filled during 2005-06 (State-wise). The Committee hoped that all remedial measures were being taken by the Centre so that the DIETs could become functional in the real sense for carrying out their assigned task.

8.163 NCTE was also the statutory body for recognition of institutions for conducting various teacher education programmes. In pursuance of this mandate, as on January, 2006, 5854 teacher education institutions offering 6647 courses had been recognized by the council with an approved intake of about 5.22 lakh teacher trainees. The Committee liked to have full details of institutions State-wise, recognized during the last two years by the Council.

8.164 The Committee understood that the Planning Commission had suggested that the Teacher Education Programme should be merged with SSA in the Eleventh Plan. The Committee observed that to maintain the quality of education under SSA, training of teachers needed to be given due focus which had been hitherto lacking. The Committee hoped that 2006-07 being the last year of the Tenth Plan, the Department would have taken a decision by now.

District Primary Education Programme (DPEP)

8.165 The Committee took note of the targets and achievements made under DPEP till the year 2005-06. The Committee noted that as per the table given above, the achievements of the Department as such was not very impressive, especially as regards free text book distribution, in service training of teachers, drinking water facility. The Committee recommended the Department to undertake sincere steps to achieve the targets fixed under DPEP.

8.166 The Committee was further at a loss to find out the level of achievements against the various targets fixed for 2005- 06, particularly in respect of Bihar, Jharkhand, UP and Uttaranchal whose project period was completed on 31.3.2006. The Committee was not happy with the attempt of the Department to give data on targets and achievements in cumulative format as that prevented the Committee from drawing conclusive inference. The Committee recommended the Department to give data on targets and achievement on yearly basis.

8.167 The Committee was dismayed to note that the four States viz., Bihar, Jharkhand, U.P. and Uttaranchal where the external assistance was going to close on 31st March, 2006 had not made any significant stride towards the goal of universalization of primary education. As regard total number of children admitted in a AIE centres, the cumulative achievement upto 2005-06 was little more than 50 per cent in Bihar and less than 50 per cent in Uttaranchal. Again, the total cumulative achievement upto 2005-06 for construction of toilets was a poor 30 per cent in Bihar. Similarly, as regards construction of additional classrooms, Bihar had 2016 class rooms as against a cumulative target of 2297 classrooms Uttaranchal had 866 classrooms against a target of 1219 classrooms. The Committee desired that the Department submit a status paper within one month of the presentation of the Report as to why there had been no achievement of the targets fixed for the above-mentioned States under DPEP despite massive funding and its complete utilization. One of the major objectives of DPEP was to reduce drop out rate to less than 10 per cent. The Committee was interested to have an idea about the level of achievement (district-wise) in the four states where project period had ended on 31.3.2006.

Kasturba Gandhi Balika Vidyalaya (KGVB) Scheme

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8.168 The Committee observed that the scheme had not taken off as yet. Fund utilization position seemed to be satisfactory in the first year of the scheme i.e. 2004-05. However, in the very next year, against a provision of Rs. 225.00 crore, utilization status stood at Rs. 27.93 crore as on 17.2.06. Committee’s apprehension was further confirmed by the fact that as on 1.4.2005, unspent balances of Rs. 92.00 crore were available with different states which increased to Rs. 103.29 crore within a period of six months. The Committee viewed this development with serious concern and felt that position as on today instead of showing any improvement must have deteriorated further.

8.169 The Committee observed that the functional status of KGBV school as on 31st December, 2005, revealed that out of 722 sanctioned schools, 649 had become functional. Bihar and J & K were the two major defaulter states having only 29 and 1 school functional out of 62 and 14 sanctioned respectively. The Committee was further constrained to note that in respect of Arunachal Pradesh, Tripura and Uttaranchal, inspite of school becoming operational, status of land availability was not known. Details regarding construction agencies revealed that it could be long before construction would start and schools would be having their own building.

8.170 The Committee urged the Department to take up this matter with State Governments on priority basis and ensure the process of land availability and completion of preliminary exercise for construction work expedited. Otherwise, there was a looming danger of this scheme getting stuck causing undue delay in delivering the noble aims the scheme stands for.

Mahila Samkhya

8.171 The Committee was dismayed to note that the Department could not even spend the reduced allocation as its total expenditure which had been a mere Rs.19.00 crore. The Committee was more astonished to see that despite non-utilization, the States getting the grants had more or less achieved the targets fixed, in some cases, the targets had been surpassed over and above the limit. The Committee failed to understand this phenomenon and desired to be enlightened.

8.172 The Committee had been informed that Rs.30.00 crores had been projected as BE for 2006-07 since the MS programme was set to expand to two new States of MP and Chhatisgarh as well as to 20 additional districts in the existing States. Apart from that funding for Bihar and Jharkhand would also be made from the MS Budget in 2006-07, which was earlier being made from DPEP funds. This projected BE in the Department’s opinion would be sufficient to cater to the needs of existing programme as well as the proposed new districts under the MS programme. The Committee felt that the present allocation was not sufficient to run the scheme efficaciously. It recommended that the Department ensure that the scheme did not get affected for want of funds.

Continuing Education for Neo-literates

8.173 The Committee noted that Plan allocation for Continuing Education for Neo-literates was reduced from Rs.165.92 crore in BE 2005-2006 to Rs. 149.12 crore in RE 2005-2006. The Department had informed that this was done in view of the priority given to covering the illiterates in 150 low literacy districts. For this purpose, an amount of Rs. 15 crore was re- appropriated from the Scheme of Continuing Education for Neo-literates to the Scheme of Literacy Campaigns and Operation Restoration for taking up Special Literacy Drive in those districts. The Committee disapproved the reappropriation of Rs. 15 crore from the Plan allocation for Continuing Education Scheme. The Committee felt that given the fact that the annual expenditure per district under this scheme is Rs.2.50 crore and in view of nearly 300 districts covered under this scheme in 2005-06, the BE itself could be considered less than required. Re-appropriation from this lesser amount could not be commended. The Committee was of the view that the Department should have made separate provision for the special Literacy Drive.

8.174 Looking into the grants released under the scheme of Continuing Education for Neo-literates during the last three years, the Committee noted that Karnataka, Madhya Pradesh, Maharasthra, Tamil Nadu, Uttar Pradesh etc. have higher allocation in 2004-05 in comparison to 2003-04, while other States have reduced allocation for the same period. The Committee was of the opinion that an effective implementation of the scheme should have resulted in lesser requirement of funds than previous year. But the argument was that effective implementation meant larger people in the ambit of the scheme and consequent increased funding, then, States like Andhra Pradesh, Gujarat, Mizoram, West Bengal seemed to be poorly performing States. Whatever was the position, the Department needed to look into the performance of the Scheme sincerely and do the needful to make the scheme efficacious.

8.175 The Committee also noted with concern that Arunachal Pradesh, Assam, Jammu & Kashmir, Punjab, A & N Island, etc. had not been released any fund from 2002-03 to 2004-05. Also, States like Bihar, Delhi, Himachal, Jharkand, Nagaland, Orissa, Sikkim had been provided grants only once during 2002-2003 to 2004-2005. The Committee was unhappy with such

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a pattern of funding. It recommended the Department to take urgent steps to ensure proper implementation of the scheme.

Literacy Campaigns & Operation Restoration

Special Literacy Drive in 150 districts

8.176 The Committee learnt that the Council of the NLMA in its meeting held in April, 2005 decided to launch a special literacy drive in 150 low literacy districts of the country. All the concerned districts were requested to submit their proposals for consideration and approval of NLMA. The Project Approval Committee (PAC) of the NLMA in its meeting held in August-September, 2005 approved the proposals of 46 districts in the States of Bihar (23), Rajasthan (11) and Jharkhand (12). The proposals of 4 districts of Karnataka were approved by the PAC in its meeting held in October 2005. These proposals were under process and would be sanctioned on settlement of the accounts of earlier programme and receipt to the commitment form the State Government concerned.

Projects for Residual Illiteracy (PRI)

8.177 The Committee noted that the Literacy Campaigns and Operation Restoration saw an increase in allocation from Rs. 22.50 crores in BE 2005-06 to Rs. 37.50 crores in RE 2005-06. As regards the reasons for the increase, the Department informed that the main reason for increase in the allocation for the Scheme of Literacy Campaigns & Operation Restoration is to provide financial assistance for launching of Special Literacy Drive in 150 low literacy districts of the country. Based on the proposals received so far, Special Literacy Drive had been approved in 23 districts of Bihar, 23 districts of Uttar Pradesh, 11 districts of Rajasthan, 12 districts of Jharkhand, 4 districts of Karnataka and 1 district of Punjab. So far, an expenditure of Rs. 27.85 crores had been incurred under this scheme. The Committee expressed its unhappiness over the non-utilization of the funds under the scheme. The Committee noted that there was an increase of Rs. 15.00 crores at the RE stage in 2005-06 mainly for the Special Literacy Drive in 150 low literacy districts, however, the Project Approval Committee (PAC) of NLMA had approved the proposals of only 74 districts. The Committee found this situation worrisome and recommended that Special Drive be conducted as a special measure. The unspent balance indicated the apathy of the Department towards the scheme in general and special drive in particular. The Committee desired the Department eradicated illiteracy in an effective manner and did not sink the drive in the whirlpool of rules and regulations. The Committee recommended the Department to simplify and rationalize the rules and be accommodative to the genuine constraints of states and expedite the process to cover all the 150 districts.

8.178 As regards the allocation for 2006-07, the Committee noted that a BE provision of Rs.30.00 crores had been made for the Scheme which included a provision of Rs. 3.00 crores for NER, as against the projected requirement of Rs. 45.00 crores. The Department had informed that the position would be reviewed at the Revised Estimates stage depending upon the proposals received from State governments for augmentation of funds, if needed. The Committee recommended the Department to ensure required fund for the proper implementation of the scheme and see to it that there was no unspent balances under the scheme.

Support to Non-Governmental Organisations

8.179 The Committee noted that the Plan allocation under the scheme of Support to NGOs in the field of Adult Education in BE 2005-2006 was 25.00 crores, but only Rs. 19.10 crore was released finally on account of non-receipt of viable proposal from NGOs. The Committee was of the view that in case of non-receipt of viable proposals, the Department should utilize the funds through Zilla Saksharta Samitis. The Committee was, however, dismayed to note that even out of the reduced allocation, the Department has managed to spend only 11.10 crores till 17th February, 2006. The Committee strongly recommended that the Department should ensure timely utilization of the funds and prevent last minute rush. The Committee also noted that the allocation under the scheme in BE 2006-07 was Rs. 7.00 crores. As regard the cut in the BE 2006-07, it was stated that the outlay projected for 2006-07 was Rs. 25.00 crores, against which an allocation of Rs. 7.00 crores only had been provided. The adult neo-literates were mostly covered under Continuing Education Programme implemented by the Zilla Saksharata Samities. The Committee endorsed this reduction and was also of the considered opinion that the allocation should completely utilized.

Jan Shikshan Sansthan

8.180 The Committee was disappointed to see that there was reduction in the number of beneficiaries in 2004-05 by nearly 3 lakh from its previous year, 2003-2004. The Committee took this reduction very seriously, more so, in face of the fact that allocations and expenditure under JSS had increased during the said period.

8.181 The Committee, however, drew attention of the Department to very strong observation made by the

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Planning Commission in its mid-term review of the Xth Plan. It had observed that only 16 JSS out of 80 could be rated very good. This was sufficient to indicate that monitoring work of JSS in particular and that of NGOs in general was not being carried out properly. The Committee recommended that the Department put in sincere efforts to see that the NGOs deliver all for which they were funded and no laxity on their part be tolerated.

Budgetary Allocation

8.182 Committee’s attention had been drawn by a disturbing trend gradually taking roots along with the increase in allocation and utilisation of funds. The Committee observed that as on 1.4.2004 there were as many as 4652 pending Utilisation Certificates for an amount of Rs. 5510.85 crores. While appreciating the persistent efforts made by the Department in getting reduced the pending UCs to 2903 amounting to Rs.535.62 crore, the very fact that there were pending UCs highlighted the inadequacies of the accounting procedure as well as incapacity of the implementing agencies. Another comparatively more serious fall-out being noticed was increasing unspent balances lying with various Grantee institutions. The Committee was constrained to observe that there were unspent balances of Rs. 505.53 crore as on 1.4.2005 which reached the figure of Rs. 928.86 crore within a short span of 6 months. The Committee could not but conclude that this figure must have increased further by the closing of 20.5.06. What was more worrisome was that major portion of these unspent balance was from Plan funds that too with other implementing agencies (NGOs)/autonomous bodies. The Committee was of the firm view that along with the projection for enhanced funds, the Department needed to take every precaution not to allow such a tendency of unspent balances which was against all the financial norms.

Universalisation of Secondary Eduction

8.183 Allocation of Rs.1067.00 crore for secondary education sector in 2006-07 was on enhanced level when compared with the allocation of Rs.787.51 crore during 2005-06. However, this was much below the requirement for secondary education projected by the CABE Committee. Massive funding was being made for universalisation of elementary education by implementing SSA in a mission mode. The Committee felt that universalisation of secondary education was an achievable target in the near future if the government of the day had the will power to do it. The Committee, therefore, recommended that the entire planning should concentrate to achieve the Universalisation of Elementary and Secondary Education simultaneously.

8.184 The Committee desired that the Department reoriented its planning and evolved a time bound strategy with strong infrastructure back up to ensure that the students passing out of the SSA continued their education in secondary level lest the entire money spent on SSA would be a national waste. Quality oriented approach towards Universalisation of Secondary Education could help in producing skilled human resources which would become a national asset.

8.185 The Committee endorsed the suggestion of the CABE Committee that we should not wait till 2010 to implement the universalisation of secondary education. The Department should seize the opportunities and gear up all the administrative machinery including that of the State Governments to ensure that universalisation of secondary education becomes a reality from the next financial year (2007-08).

National Council of Educational Research and Training (NCERT)

8.186 The Committee had been observing the very slow progress being made in the construction of building for PSSCIVE, Bhopal and NERIE, Shillong. Proposal for construction of building of PSSCIVE, Bhopal was approved at an estimated cost of Rs. 18.54 crore on 13.10.2004. However, in spite of release of initial instalment of Rs.6.82 crore to CPWD for starting the construction in 2004-05, not much progress seemed to have been made thereafter. It took almost a year to decide the rate of consultancy fee to be paid to the School of Planning and Architecture. As per the latest information, complete architectural and structural design and detailed estimate were to be made available by SPA by the first week of March, 2006. With regard to NERIE, Shillong to be constructed at an estimated cost of Rs. 15.62 crores, approval for which was given by SFC on 29.4.2005, preliminary exercise for structural designs were under preparation by SPA. The progress so far made clearly indicated that buildings for both the institutes would not be ready by the end of Tenth Plan. The Committee was not very happy with the handling of these two prestigious projects. It would be appropriate if NCERT played a more pro-active role and got the building constructed within a prescribed time schedule at the earliest.

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8.187 The Committee recommended that NCERT should take all possible steps to plug the loopholes in the distribution of text books, as they were already aware of the weak areas in the distribution of text books and ensure that students got text books on time.

Kendriya Vidyalaya Sangathan (KVS)

8.188 The Committee appreciated the initiatives taken by the Government to augment the plan allocations to KVS and desired that the increased allocation may be utilized in time for the purposes for which it was allocated.

Navodaya Vidyalaya Samiti (NVS)

8.189 The Committee recommended that new schools may be sanctioned only after assessing the possibility of obtaining the required land. The Committee also recommended that the matter of allotment of land to 32 schools may be taken up at the highest level to ensure that land is allocated without any delay. The Committee noted that as many as 28 new schools are to be set up in 2006-07 and hoped that the target of construction of Navodaya Vidyalayas supposed to be complete by March, 2006, must have been achieved. The Committee desired that the Department provide the Committee a status report in this regard within one month of the presentation of this Report.

ICT @ Schools

8.190 The Committee observed that it had taken almost three years of 10th Plan in getting the approval of CCEA for the revised ICT in School scheme. As a result funds allocated at the beginning of the year continued to be reduced in the RE stage and actual expenditure reported was even less. Although the scheme was launched on 15.12.2004, it was only in the financial year 2005-06 that first instalment of grant-in-aid amounting to Rs. 30.88 crore could be released to 2580 schools in the country. The Committee hoped that benefit of this scheme would be reaching to more schools in view of enhanced allocation of Rs. 67 crore for 2006-07. The Committee felt that information about internet facility installed in schools covered by the scheme during the year 2005-06 must be now available with the Department. The Committee desired to have full details, state-wise. Access and Equity

8.191 The Committee noted that during 2004-05 and 2005-06, NGOs from around 12 States were covered. However, the Committee noted that the scheme was not spreading to other States though there was underutilization of the allocated funds. In the year 2004-2005, out of the 89 NGOs selected for the scheme, 25 each were from the States of Andhra Pradesh and Karnataka. In the year 2005-2006 also, there were 31 NGOs from Andhra Pradesh. Further, there was concentration of NGOs in particular districts of these two States. The Committee recommended that these facts need to be verified through appropriate authorities to see that these NGOs were actually existing and the funds were utilized for the purpose it was allocated. The Committee further recommended that the Department should popularize the scheme and implement it in more and more states. 8.192 The Committee noted that the Tenth Plan outlay for the Access and Equity scheme was Rs. 305 crore, out of which Rs. 33.80 crore were utilized during the first four years of the plan period. This showed that the scheme had fewer takers in the States. The Committee felt that the other States were not coming forward to utilize the scheme due to the inherent weakness in the scheme. The Committee, therefore, recommended that the scheme needed to be thoroughly revamped to ensure its acceptability by other States as well. Further, the Committee desired that the Department look into the efficacy of the scheme making a cost-benefit analysis and ensure optimal use of the scarce resources of the nation.

Quality Improvement in Schools (QIS)

8.193 The Committee noted that a conscious decision based on experience in the implementation of the above mentioned existing schemes separately was taken at the beginning of the 10th Plan itself to have a composite scheme. However, it took almost three years to get the new scheme formally approved. The Committee disapproved such a tardy pace in implementing a policy decision and hoped that such tendency would not recur. The Committee also wanted to emphasize that there was a need for having a review of all existing small schemes under the secondary education sector and streamlining the same for attaining optimal benefits.

8.194 The Committee found that while the composite scheme was being formulated, funds were being duly released year after year with the expenditure level going down. Not only this, the main implementing agency NCERT along with sub agencies continued to have unspent balances. The Committee failed to understand the logic behind the allocation and wanted the Department to explain this release of funds and the benefits accrued therefrom.

8.195 The Committee was surprised to note that the component of ‘Improvement of Science Education in Schools’ was

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now to be transferred to State Governments and the other four components would remain with NCERT. The Committee failed to understand the rationale behind the latest move and desired that the Department explain the same.

Introduction of Yoga in Schools

8.196 The Committee noted that during the financial year 2004-05, financial assistance to the tune of Rs.10.77 lakh under Plan scheme was released for five voluntary organizations and Rs. 65.00 lakh was released to Kaivalyadhama SMYM Samiti, Lonavala under Non-Plan. The Committee had no information regarding the utilization of these funds. The Committee was also apprehensive about the proper utilization of funds under the scheme. This fear of the Committee arose from the fact that Kaivalyadhama SMYM Samiti, Lonavala was also earlier provided with Rs. 65.00 lakh under Non-Plan during the financial year 2003-04. The Committee found such a pattern of financing unwarranted and desired that the Department explain the position to the Committee. 8.197 The Committee was of the opinion that yoga was one stream of education, which would make a permanent and positive impact on a student’s life. Yoga had been gaining immense popularity due to the short term as well as long-term benefits that it provided. Yoga helped one to achieve all round development. Considering the immense potential of this ancient knowledge of India, the Committee recommended that yoga be made compulsory for all school going children in the country. Integrated Education for Disabled Children (IEDC)

8.198 While appreciating the more focused approach of the revised scheme, the Committee desired to emphasize the need for having active coordination between the agencies handling the education of disabled children under SSA and secondary education sector. The Committee noted that as many as 309 NGOs were released varying amount of central assistance under IEDC scheme during 2003-04 and 2004-05. Details about 2005-06 were not available with the Committee. The Committee also observed that Rs. 33.84 crore, Rs. 38.46 crore and Rs. 36.57 crore were released both to the State Governments and NGOs during 2002-03, 2003-04 and 2004-05. The Committee desired to have a statement on pending utilization certificates under the schemes during the first three years of the 10th Plan, State-wise. The Committee hoped that drawbacks of the earlier scheme would not be there in the proposed new scheme. Area Intensive and Madarsa Modernization Programme

8.199 The Committee noted that for infrastructure development only U.P and A.P were selected. The Committee failed to understand as to why other states were not allocated money for the purpose. Similarly, the rationale behind selecting only seven states for Madrasa Modernization Programme was also not known. Further, the Committee was at a loss in drawing out conclusions as the actual utilization figures had not been supplied by the Department. The Committee recommended that the utilization of the allocation be closely monitored and the scheme be implemented in all the states. The Committee desired that the Department furnish an explanatory note on the shortcomings pointed out as above within one month from the presentation of the report.

University Grants Commission 8.200 The Committee was informed that out of the total UGC expenditure amounting to Rs. 1943.56 crores for the year 2004-05 an amount of Rs. 460.04 crore was disbursed to the state universities and colleges which constitute 23.67% of the total expenditure. The Committee noted that the financial position of the state universities was poor so much so that a major chunk of allocated funds went to salary and allowances and maintenance expenditures. There was little left for these universities to undertake research and quality improvement of education. Unfortunately, University Grants Commission was not maintaining any data regarding the fund allocation by the state Governments to the State Universities which prevents in getting a clear picture of the financial position of the State Universities. The Committee recommended that the UGC should maintain a database of the funding pattern of the state universities.

8.201 The Committee noted that the Plan allocation for UGC had been substantially stepped up from Rs. 785.40 crore in 2005-06 to 1269.80 crore in 2006-07 representing an increase of 61.68%. The Committee hoped that the UGC would be utilizing the funds optimally helping the state universities grow qualitatively and also promote quality research in universities. 8.202 The Committee felt that gender studies appeared to be a neglected area in the Higher Education sector. The women studies centres were still not existing in a number of universities. Given the increased role and contribution of women in every sphere of life, Government needed not only to popularize these centres but also advocate opening of such centres in all universities. This gesture should begin with the Central universities. Necessary funding for that purpose should be arranged. The Committee, therefore, recommended that the University Grant Commission should give more thrust to the development and progress of the Women Study Centres of various Universities and Institutes.

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Vacancies in Colleges and Universities

8.203 In this connection, Committee’s attention had been drawn by the observation of the Committee on CABE on Financing of Higher and Technical Education that vacant faculty position was one of the major factors affecting standards of higher education in the country. The Committee observed that the tendency to allow vacancies was seriously compromising efforts on quality of higher education. Chronic shortage of faculty members too adversely affected the quality of education in colleges and universities. The Committee was given to understand that all Central Universities had been directed to fill up the backlog vacancies by 31.12.2005. The Committee desired to be apprised about the latest position in that regard.

Indira Gandhi National Open University (IGNOU)

8.204 The Committee observed that allocation for IGNOU in 2006-07 was at an enhanced level of Rs. 100 crore when compared with Plan allocation of Rs. 60 crore in 2005-06. Trend of allocation of Plan funds and utilization thereof for IGNOU during the Tenth Plan so far revealed a discouraging picture. As per the details made available to the Committee, there had not been judicious and optimum utilization of allocated funds. During 2003-04, provision of Rs. 67.00 crore had to be reduced drastically to Rs. 20.00 crore at RE stage and these utilized funds also included an adjustment of Rs. 3.44 crore unspent balance available with the University. The Committee was constrained to observe that in 2004-05 and 2005-06 also, utilized funds amounting to Rs. 67.00 crore and Rs. 60.00 crore included unspent balance of Rs. 2.35 crore and Rs. 2.60 crore respectively. The Committee apprehended that during the current year also keeping in view enhanced provision of Rs. 100.00 crore, chances of under utilization was very much there in spite of adjustment of unspent balance of previous year. The Committee strongly felt that there was an urgent need for monitoring of achievement level of both physical and financial targets set by the University on a quarterly basis to ensure optimum and judicious utilization of funds as per the prescribed norms.

8.205 The Committee while appreciating the contribution being made by IGNOU for the educational advancement of our youth, felt that there was an urgent need for having a review of the vast network of IGNOU, nature of its coordination with DEC along with the work being done by the Council, comparative analysis of performance level and quality of education in State Open Universities vis-à-vis Correspondence Course Institutes in conventional universities. The Committee desired to be apprised about the findings of any such exercise, even in a limited level done so far. The Committee also desired to be apprised about the problem areas being noticed both by the University/Council authorities and student community.

National Council of Rural Institutes

8.206 The Committee had been observing the functioning of this Council for considerable period of time. There seemed to be some inherent constraints in the set up of the Council, established for fulfillment of a noble ideal of Father of the Nation. The Committee had been noticing a very disturbing trend of allocation of funds for the Council during the entire Tenth Plan. Since 2002-03 funds were being duly allocated at the beginning of the year to be brought down drastically at the RE stage and finally that also remain unutilized. It was only towards the end of the year 2005-06 that some activity had started in the Council with four Nai Talim Gandhian Basic Education Institutions being released an amount of Rs. 10.80 lakhs. It was also learnt that the Governing Body in a meeting held on 20.1.2006 had approved financial assistance to nine institutions for a total amount of Rs. 2.97 crore. 8.207 The Committee had strong reservations on the way the Council was being run. The Committee strongly felt that final view needed to be taken and basic requirements for the effective functioning of the Council needed to be fulfilled without any further delay.

All India Council for Technical Education (AICTE)

8.208 The Committee was given to understand that for management courses, the institutions/universities were under the dual control of UGC and AICTE. Many a times, this dual control created problems for smooth conduct of the management courses. The Committee felt that the Department should come up with a framework to ensure that there was no conflict in the working of any statutory bodies.

8.209 The Committee noted that the number of seats vacant in various states was quite significant, prominent among them being Kerala and Meghalaya where 18.8% and 30% of the seats respectively were lying vacant.

8.210 The Committee observed that when the entire nation had geared up for producing more and more qualified and skilled human resources, the tendency of keeping the seats in technical institutions vacant was an unpardonable crime. Such indifferent attitude of the authorities was quite retrograde and predatory; and above all it was wastage of scarce national resource. The Committee, therefore, recommended that under no circumstances the seats in the technical institutions should

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be left unfilled. A mechanism should be evolved whereunder those candidates who had attained the qualifying marks in the entrance exams but were placed low in the merit list could be selected to fill the vacancies.

8.211 The Committee was not satisfied with the comments of the Department. The reply of the Department did not clarify why the fund were allotted to a non-existent programme. It was amply clear that a provision of Rs. 91.48 crore was made in the budget without any purpose. This, according to the Committee was a clear case of financial/budgetary irregularity. An enquiry may be made into the entire episode and the findings may be furnished to the Committee.

Scheme of Community Polytechnics

8.212 The Committee noted that more than 300 polytechnics were having unspent balances lying with them. Therefore, the budget allocation were reduced at the RE stage in 2005-06. Non utilization of the allocations to that extent indicated that the scheme was plagued with constraints/drawbacks. The Committee recommended that if need be, the scheme may be revamped to ensure that the entire allocations were utilized by the polytechnics. A serious review of the scheme of things would help in finding the utility of the scheme for the targeted beneficiaries and also the aspect of fund utilization.

8.213 The Committee was also disappointed to note that the Community Polytechnics were not evenly distributed across the country. The situation was particularly poor in the Eastern Region which had the maximum rural populace but this region had been accorded with only 97 Community Polytechnics of the total 669 existing in the country. The Committee desired that the Department ensure that there was an even regional distribution of the Community Polytechnics so that technology became the real carrier of community/rural development.

Indian Institutes of Management (IIMs)

8.214 The Committee recommended that the Government should create more opportunities for students in the country by opening at least one IIM in each state and also increase the number of seats in existing IIMs.

8.215 The Committee was informed that currently, IIMs at Ahmedabed, Bangalore and Kolkata were generating their own resources for their functioning. Government provided financial assistance both under plan and non-plan to IIMs at Indore, Lucknow and Kozhikode. The Committee recommended that the government should chalk out a plan in consultation with IIMs to ensure that over a period of time, the IIMs became self-supporting and not depend on government for normal functioning.

8.216 The Committee noted that almost 15 to 20 per cent of the faculty posts were lying vacant in the IIMs. The vacancies which would arise due to retirement could always be accounted in advance and steps could be taken in advance to fill the vacancies as soon as it arose. The Committee, therefore, wondered what prevented the IIMs from filling up the vacancies. Interestingly, the Department admitted that there was no shortage of trained faculty. The Committee recommended that the Government and IIMs should ensure that all the faculty positions were filled up at the earliest. If the IIMs could not fill the vacancies, the Committee may be apprised about the reasons for the delay.

National Merit Scholarship Scheme

8.217 Under the scheme out of the proposed 10976 total scholarships, 9012 scholarships for class IX and 13830 out of proposed 17000 scholarships of class XII were granted during 2005-06, incurring an expenditure of Rs.7,50,61,198. The Committee appreciated that this scheme had finally taken off, specially in view of its non-performance under the two erstwhile schemes till 2004-05. The Committee observed that almost all the States/UTs had been covered under this scheme with varying number of scholarships granted. The Committee, however, liked to point out that number of renewal scholarships granted in 2005-06 was only 788, out of which as many as 713 went to Haryana. The Committee desired to emphasize that the very objective of the scheme would be lost if the meritorious students getting scholarship in class IX or XI did not get the benefit in the next class. The Committee was not aware about the past experience in this regard. The Committee, however, liked to emphasise that this aspect needed to be given due consideration. The Committee would appreciate if monitoring mechanism was evolved whereunder performance level of students getting scholarships could be kept under watch. The Committee was also of the view that there was a need for making the student community as well as the parents aware about this kind of schemes so that the maximum number as well as the most deserving cases could be covered.

Grant-in-Aid Scheme of Scholarships to Students from non-Hindi Speaking States/UTs for Post-Matric Studies in Hindi

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8.218 Under this scheme scholarships were awarded to students from non-Hindi speaking States/UTs for pursuing post- matric studies in Hindi. The Committee noted that 2426 scholarships involving an expenditure of Rs. 89,63,519 were awarded to students of different States during 2005-06. The Committee had been given to understand that under this scheme, the States were reporting only total expenditure incurred by them each year. The Committee was not aware whether any exercise had been undertaken so far for making an assessment about the implementation of this scheme as per the prescribed norms. The Committee also pointed out that as per the records available for 2005-06, only 7 renewal scholarships were awarded. This clearly showed that students were not showing an inclination for pursuing the study in Hindi in the next year. If that be so, the Committee strongly felt that there was a need for taking up the issue with those States where maximum number of such scholarships had been granted.

8.219 The Committee welcomed the introduction of the new scholarship schemes and hoped that wide publicity would be given to these schemes so that maximum number of students could be covered. Book Promotion

8.220 The Committee noted that during 2005-06 total provision of Rs. 9.54 crores was enhanced to Rs.14.04 crore at RE stage. The major enhancement was meant for grants to NBT/institutions for book promotion from Rs.3.24 crore to Rs. 9.74 crore. The Committee was, however, surprised to note that till December 2005, against RE allocation of Rs.14.04 crore, expenditure reported was only Rs.1.48 crore that too for one scheme i.e. grant to NBT. The Committee wondered whether any review so far had been made about these schemes formulated in the name of book promotion. The Committee was of the view that there was a need for reassessment and formulation of one composite scheme for book promotion.

(d) 175th Report

Introduction

8.221 The Committee appreciated the Government’s move to bring all the child related issues under one Ministry and desired that all out efforts should be made by the Ministry in implementing these schemes in an effective way.

Budgetary Allocation 8.222 Out of the total plan allocation for the Ministry, maximum funds were earmarked for the child welfare schemes whereas the women welfare schemes were getting the benefit of a very small proportion. However, one prominent feature being noticed by the Committee year after year was that there had been optimum utilisation of Plan funds under the child welfare sector in spite of steady increase in the allocation. In contrast, both allocation and utilisation position in respect of women related schemes showed a declining trend as indicated below:-

Rs. in crores 2003-04 2004-05 2005-06 (upto 2006-07 3.3.06) Women’s welfare Allo. Exp. Allo. Exp. Allo. Exp. Allo. Exp. Scheme 202.50 115.14 174.03 151.90 132.27 78.45 121.48 --

Allo. – Allocation Exp. -- Expenditure

8.223 The Committee strongly felt that women welfare related schemes needed to be reviewed as a whole to analyse the reasons for this trend of utilisation of funds. Possible reasons could be overlapping of some of these schemes, lack of awareness in the targetted beneficiaries, role of implementing agencies, specially NGOs etc. The Committee would appreciate if such an exercise was initiated by the Ministry at the earliest.

8.224 The Committee desired to be apprised about the pending UCs (State-wise and scheme-wise). The Committee wondered whether any action against the implementing agencies could be initiated now after a lapse of about twenty years or so. The Committee was of the firm view that financial norms needed to be strictly adhered by both the disbursing and implementing authorities. The Ministry should initiate an exercise for procurement of pending UCs without any further delay. The Committee was also of the view that the Ministry should not be satisfied with the timely submission of Utilization Certificates by the implementing agencies. There was a need for evolving a system of random checking of utilization certificates so as to ensure that funds released were being utilized for the intended purposes. That would also give an idea to the Ministry about the constraints being faced by the implementing agencies in proper utilization of allocated funds.

8.225 Taking a serious view of this alarming situation, the Committee emphasized that the Ministry pursued the issue of

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unspent balances with the concerned States Governments/Autonomous Bodies. The Committee failed to comprehend the reason for unspent balances. Funds were released in accordance with well-planned projections made by the implementing agencies. Then why was it so, that they remained unspent thus defeating the very objective of the scheme itself. Being the nodal authority for carrying out children and women welfare related schemes, it was for the Ministry to ensure optimum and judicious utilisation of Central funds.

8.226 The Committee desired to have details of expenditure scheme-wise for the year 2005-2006. The Committee also added that since most of the schemes were run with the assistance of State Governments/NGOs, necessary measures should be taken to coordinate the activities with the concerned implementing agencies so that a transparent picture of detailed expenditure could emerge and a proper feedback helped in understanding the absorption of allocations. 8.227 The Committee was constrained to observe that none of the strategies as mentioned above seemed to have been implemented upon by the Ministry during the Tenth Plan. Had it been done, some noticeable changes would have been visible by now. Final year of the Tenth Plan had started and position remained unchanged. This was a classic example of how strategies on the paper became fruitless in the absence of strong willpower and mechanism to implement them. The Committee was of the view that these strategies had become all the more relevant in the present scenario. The Committee would appreciate if the Ministry initiated action without any further delay.

Integrated Child Development Services (ICDS) Scheme

8.228 The Committee was informed that the Inter-Ministerial Task Force set up in 2004 to review the existing population norms for sanction of an ICDS Project/AWC and suggest revised norms had submitted its reports/recommendations in May 2005. The Committee found that so far 23 States/UTs had undertaken a micro-level Survey/Planning and forwarded information regarding location specific requirement of additional ICDS Projects and Anganwadi Centres. The Committee had been given to understand that information submitted by some States was incomplete and not in the prescribed format. One year had passed since the submission of the Report of the Task Force, and the required information was still awaited from States/UTs. The Committee was of the view that the Ministry should make concerted efforts so that AWCs could be set up as per the revised population norms.

8.229 The Committee noted that from 2005-2006, the Government of India were to support States upto 50% of the financial norms or 50% of the expenditure incurred by them on supplementary nutrition. The Committee was surprised to note that the Ministry had not held pre-budget discussions with the States on this issue so far. Ministry’s clarification that States could present their resource position during their discussion on the States Annual Plan with the Planning Commission was not at all convincing.

8.230 In the absence of any detail about the supplementary nutrition met by the States/UTs, it was difficult to assess the impact of the new initiative. The Committee desired to be apprised of the implementation status of this initiative during 2005- 06.

8.231 The Committee agreed that increasing the number of Anganwadi Centres from existing 7.44 lakhs to 14 lakhs might be a gigantic task but the Ministry could no longer afford to sit on the problem and delay the process. Instead a plan of action needed to be formulated by the Ministry expeditiously for achieving the targets set by the Supreme Court. Implementation of the SC directives would catapulate the health of the Indian population comparable to the standards of any of the developed countries. The Committee therefore felt that the Ministry should study the suggestion in its entirety and chalk out a road map to implement the same. Lack of funds could not be the sole excuse to not implement the suggestion. The Committee also desired to be apprised of the reply given to the Supreme Court by the Ministry in this regard. The Committee desired that Anganwadi Centres may be immediately made operational in hemlets and tribal areas where concentration of Dalits, SC/ST population was high.

8.232 Keeping in view the special needs in NE States, the Central Government sanctioned construction of 4800 AWCs at the cost of Rs. 60 crore in 2001-2002 and 7600 AWCs at a cost of Rs. 95 crore in 2002-2003. Another 7600 AWCs at a cost of Rs. 95 crore had been sanctioned in 2004-2005. Further it had been decided to undertake construction of AWCs @ Rs. 1.75 lakh per centre. Funds would be allocated out of savings available in the NE component of plan budget of the Ministry. The Committee hoped that in NE States all the AWCs would be provided with pucca buildings.

8.233 The Committee was equally shocked to see the findings of the NCAER. The Committee liked to point out that these findings were not restricted to the infrastructure status of AWCs. It was very clear that each aspect about the AWCs had been assessed and reported upon. This Report had been received by the Ministry sometime in March-April 2005. The Committee hoped that findings of this survey must have been shared with the State Governments and follow-up action started. If not, it may be done at the earliest. The Committee desired to be apprised in this regard at the earliest.

8.234 The Committee was of the considered opinion that the large number of responsibilities entrusted with the

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Anganwadi Workers (AWWs) would seriously affect the primary work of the Anganwadi Centres (AWCs) for which they were mainly appointed. With the burden of large number of additional duties, the AWW could do justice neither to AWCs nor to the additional responsibilities. The Committee noted that the Central Government provided an honorarium of Rs. 1000 p.m and Rs. 500 p.m to an AWW and AWH respectively. This was quite meager an amount compared to the burden of responsibilities entrusted on them. The Committee, therefore, recommended that the honorarium paid to these two important functionaries of AWCs may be suitably increased. A hike in their remuneration would help in increasing their motivation for better results. Resource constraints should not come in the way of such justified increase.

8.235 The Committee expressed its deep anguish over the large number of vacancies of AWWs, AWHs and Supervisors. It would not be wrong to conclude that the vacancies have hampered the functioning of AWCs and adversely affected the scheme itself. The Committee was not aware about the factors responsible for such a state of affairs. In the absence of these key functionaries, an AWC could not be considered to be operational. The Committee wondered in what manner and by when it would be possible to fill up this big gap, specially in view of 1,88,055 AWCs sanctioned in 2005-06, with the figure likely to increase further. The Committee was of the firm view that the exercise of sanctioning and filling up of these posts should start simultaneously with the sanctioning of AWCs. Otherwise this shortfall would always persist. The Committee, therefore, strongly recommended that an intense drive needed to be launched for filling up the vacancies within a fixed time frame. This could be accomplished if a strategy was worked out in collaboration with the State Governments/local bodies. Those States which were not willing to follow the time schedule may be pursued on regular basis, if need be, at the highest level, till the vacancies were filled up. The Committee desired to be apprised of the steps proposed to be taken.

8.236 The Committee was happy to note the decision of convergence between ICDS scheme and SSA & DPEP. The success of ICDS programme depended purely on effective supervision, monitoring, co-ordination and convergence with other Departments and also with better and effective participation of local bodies and community. Convergence of various components was a good idea. The Committee recommended that the revised guidelines, if need be, may be issued without any delay and the State Governments and implementing agencies be pursued for smooth implementation of the converged scheme. Keeping in view the expansion of the ICDS scheme and its proposed convergence with other programmes, the Committee strongly felt that an effective monitoring mechanism at all levels need to be put in place at the earliest. Only then, services envisaged under ICDS scheme could reach the intended beneficiaries. The Committee demanded to be apprised about the steps taken in this direction.

8.237 The Committee would like the Ministry to take cognizance of the observations contained in the Mid Term Appraisal and take immediate remedial measures to streamline the scheme. The Committee desired that it may be apprised about the steps taken in this direction.

8.238 The Committee observed that in 17 States/UTs, Co-ordination Committees at state, district, block and village levels have been set up to ensure convergence between ICDS, Health, Drinking Water and Sanitation, Panchayati Raj, Primary Education, Rural Development etc. Welcoming the initiative taken by these 17 States, the Committee pointed out that NE States, Sikkim, J&K, Orissa and Southern States had not come forward so far. The Committee hoped that with the matter being pursued by the Ministry, these States would be covered very soon.

8.239 The Committee understood that a study on ‘Three Decades of ICDS: An Appraisal’ had been conducted in all the States/UTs. Draft Report was likely to be completed by the end of March 2006. The Committee desired to be apprised about the findings of this study as and when finalised and reported.

Training Programme under ICDS (UDISHA)

8.240 The plan allocation in BE 2005-2006 was Rs. 40.00 crore and raised to Rs. 82.50 crore due to extension of project from 1.7.2005 to 31.3.2006. The actual expenditure incurred upto 3.3.2006 was Rs. 62.77 crore (Statement VI-BE, RE and Actuals for 2005-06). The Committee however, liked to point out that on a specific query, the Ministry, while giving the State wise allocation of funds under UDISHA during 2005-06, had informed that as on 16.3.06, there was an expenditure of Rs. 60.99 crores. The Committee desired to know the actual expenditure incurred under the scheme. 8.241 There was no denying the fact that judicious utilization of the allocation alone would yield desired results. The Ministry could better monitor the utilization by way of getting UCs and monthly progress reports from all the States/UTs and other agencies on quarterly basis. The Committee strongly felt that regular interaction with the States facing constraints would help in achieving the desired results.

8.242 The Committee opined that training was the most crucial element in ICDS as achievement of Programme goals depends upon the effectiveness of frontline workers in improved delivery of packages of services under ICDS. The Committee noted that the gap between trained and untrained functionaries was increasing every year. The following physical

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achievement of target and trained confirmed this:-

Upto 31.12.2005 Job Training Refresher Training Revised Trained % of Revised Trained % of Target Actual Target Actual Target Target AWWs 432143 330942 76.58646226 433913 67.15 Supervisors 14931 11466 76.79 26304 20358 77.40 CDPO/ACDPOs 4592 3548 77.26 4394 1452 33.50 AWHs 612957 518682 84.62 All Functionaries 1064623 864638 81.22 676924 455723 67.32

8.243 The Committee however, liked to point out that considering the huge backlog of untrained AWWs and AWHs, the steps initiated by the Ministry to train all the workers and Helpers have not yielded the desired results so far. The Committee observed that State Governments/UTs played the most important role in the implementation of the ICDS Training Programme. The State Governments were responsible for setting up of Anganwadi Training Centres and Middle Level Training Centres (MLTCs), working of these centres were also monitored by them. State Governments were also responsible for identifying NGOs/other organizations for running the Training Centres. The Committee felt that the status of these Training Centres both existing and required in different states was an important aspect of the Training Programme which perhaps had not been given due impetus so far. The Committee was of the view that an on the spot assessment of all the existing Training Centres with priority being given to states lagging behind needed to be made and remedial measures taken at the earliest. Mere release of central funds would not serve the purpose. The Ministry had to play a more pro-active role in the implementation of training of ICDS functionaries, the most vital aspect of the ICDS programme.

Rajiv Gandhi National Creche Scheme for the Children of Working Mothers

8.244 The Committee noted that the Ministry kept an ambitious target of 14719 creches by the end of Tenth Plan i.e. by 2006-2007; the new creeches would be allocated to the Central Social Welfare Board, Indian Council for Child Welfare and Bharatiya Adim Jati Sevak Sangh in the ratio of 80:11:9. The Committee desired to be apprised about the rationale of selecting only three agencies for operationalising the Creeche Scheme. The Committee further recommended that more and more reputed and established NGOs may be selected for implementing the Creche Scheme.

8.245 The Committee was satisfied with the steps taken to strengthen the monitoring of scheme, but had its reservations about the actual implementation aspect. It was surprising that the scheme had started functioning but consultations with State Governments were yet to take place. The Committee recommended that a time schedule may be prepared urgently in consultation with State Governments and implementing agencies for implementing its various aspects of the scheme. The aspect of utilization of funds also needed to be addressed properly.

8.246 The Committee recommended that the Ministry should ensure that 2514 creches which were earlier provided grants were not given further grants under the New Scheme. The monitoring process needed to be strengthened and responsibility fixed for any delay.

8.247 The Committee recommended that the training module should be finalised in a time frame and a suitable plan of action devised so that the targets of the training were achieved. Condensed Courses for Women Education

8.248 Plan allocation of Rs. 5.40 crore was made for this programme in 2005-2006. The actual expenditure incurred upto 3rd March 2006 was Rs. 2.70 crore. The Ministry had informed that sanctions were being issued and entire allocation was to be utilized by 31.3.2006. The Committee had, however, some reservations on the last minute spending by the Department. Rushing the expenditure in the last few days needed to be discouraged for effective utilization of resources.

8.249 The Ministry informed that in pursuance of the recommendations of National/State level workshops, a National Working Group had been constituted for revamping/evaluation of the scheme in the changing socio-economic and work environment. The report of the Working Group which was expected in August 2005 was yet to be submitted. The Committee was unhappy over the delay in submission of the Report and recommended that the matter be expedited without further delay. The Committee also desired to be apprised of its contents as and when the report was finalized.

8.250 The Committee was not happy with the present state of affairs. It felt that residential courses on selected basis should be sanctioned in those States where the response was encouraging. Obviously the girls/women were unable to pursue their studies further because of lack of hostels. The residential courses could help them fill the gap. The Committee further

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recommended that additional funds may be sought for the purpose.

8.251 The Committee may be apprised of the criteria/reasons for variations in selection of targetted beneficiaries and sanction of funds to various States.

8.252 The Committee had been given to understand that the Ministry had been getting the state-wise feedback in respect of number of courses sanctioned, amount sanctioned and released alongwith the targetted/actual beneficiaries. Figures regarding 2003-2004 and 2004-2005 had also been made available to the Committee. It was, however, surprising to note that no information was available with the Ministry about the utilized funds, accounts for which were being settled at the State Board level. The Committee strongly felt that non-availability of utilization details and availability of unspent balances with the State Governments could not be considered a healthy sign. The Committee was of the view that in the absence of such a vital information, whatever monitoring was being done at present could not be effective enough. Status of funds released and unspent balances with some State Boards was self-revealing. (Rs. in lakh) 2003-04 2004-05 State Amount released Amount released Unspent balances Andhra Pradesh 9.56 18.96 24.42 (31.3.05) Arunachal Pradesh 6.45 7.48 6.97(31.3.05) Bihar 57.27 61.62 4.85(15.9.05) Gujarat 5.63 9.47 21.94(31.3.05) Karnataka 10.36 19.54 45.78(31.3.05) Rajasthan 12.28 18.09 24.83(31.3.05) Tamil Nadu 8.93 12.86 30.29(30.11.05) Delhi 18.85 8.78 24.32(31.3.05)

8.253 The Committee recommended that strict monitoring was required to keep check on the unspent balances. It seemed that either the implementing agencies did not have the capacity to utilize the allocated funds or there were inherent flaws in the scheme which should be removed. The Committee desired to be apprised of the specific steps taken by the Ministry for utilization of unspent balances lying with the State Governments. The Committee recommended that funds may be allocated only for viable projects/schemes.

Balika Samriddhi Yojana

8.254 In 2004-05, funds were released to States, however no funds were kept in BE 2005-2006 and 2006-2007. The Ministry had informed that no monitoring/publicity was undertaken at central level. The Committee observed that total funds released as on 1.3.06 was Rs. 216.15 crore whereas unspent balance as on 30.9.2005 was Rs. 74.97 crore lying with different States like Bihar, Gujarat, Himachal Pradesh, Maharashtra, Uttar Pradesh, Orissa and Uttaranchal.

8.255 Earlier the Committee in its 160th Report had expressed serious concern about the implementation as well as the aspect of uncertainty in the transfer of BSY to the States. The Committee observed that situation instead of improving had worsened since no decision had been taken in this regard so far. The Secretary in her appearance before the Committee also conceded that this was a very unsatisfactory status.

8.256 The Committee was not happy with the uncertainty status of the BSY scheme, continuing for so long. The Committee failed to understand as why Planning Commission had taken such a long time to take a decision on transferring the Balika Samriddhi Yojana to states. A decision taken by the Planning Commission at the beginning of the Tenth Plan was yet to be finalized even though Tenth Plan period was in its last year. The Committee was also not aware as to how the Committed Liability of Rs. 74.97 crore lying with different states was going to be adjusted. The Committee was of the view that this was a classic case of improper formulation of a scheme launched in haste and inherent flaws being noticed during the course of its implementation. The Committee did not have much hope about this scheme being effectively implemented by states, with some States already facing severe financial constraints. The Committee therefore again reiterated that fate of BSY scheme needed to be decided at the earliest. The Ministry being the nodal authority had to vigorously pursue this issue with the Planning Commission.

Assistance for Construction/Expansion of Hostel Buildings for Working Women with Day Care Centres for Children

8.257 The Committee found that both the financial and physical performance under the scheme have shown declining trend over the years. The utilization had been below the target. It seemed that there was no activity under this scheme in the NE region as there was an expenditure of only Rs.9 lakhs against an allocation of Rs.1.00 crore in 2004-05 and nil expenditure had been reported in 2005-06 as on 3.3.2006. The Committee was not aware whether any exercise had been

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initiated so far to make an assessment about the unsatisfactory performance of this scheme and take remedial measures. If not done so far, the Committee felt that this was the right time to initiate the same.

8.258 The Committee was of the considered view that the Ministry should not finance such projects or scheme, wherein it has no control over its implementation. In the present scheme, the Committee felt the accountability was lacking and control was missing. Implementation Agencies should not have the sole discretion to select construction agencies. In any case, projects needed to be handled by Government agencies. The Committee also liked to point out that there was an increasing need for setting up more Hostels. If need be, norms for opening of Hostels could be reviewed and revised. The Committee, therefore, recommended that the scheme needed to revamped and started afresh.

Support to Training and Employment Programme for Women (STEP)

8.259 The Ministry had cited the inadequate number of staff as one of the reasons for underutilization of funds. Lack of staff for a national level programmes aimed to benefit thousands of women in traditional sectors was hardly a convincing argument. The Committee also noted that the technical team was taking undue time in clearing the projects. The Committee recommended that the Ministry should initiate assessment of the scheme so that procedural bottlenecks could be removed and scheme could be implemented effectively.

Swawlamban

8.260 The Committee found that as many as 1988 utilization certificates were pending with the implementation agencies spread over in different States with the maximum number of UCs being in Andhra Pradesh (321), Uttar Pradesh (206), J & K (180) and M.P. (148). The Committee was surprised to note that even Central Social Welfare Board had to account for 173 Utilization Certificates. 8.261 The Committee in its 160th Report had expressed its concern that transfer of the schemes not performing well to the States cannot be considered a wise decision. The Committee was of the view that perhaps no efforts were made by the Ministry to sensitize the State/UTs before the transfer of the scheme. As per the Performance Budget (2005-06), Rs. 2.00 crore had been provided under the scheme for 2006-07 also. The Committee failed to comprehend the reason for allocating fund for 2006-07 when the scheme stood transferred to the States from 1.4.2006. The Committee desired the Department to clear the air of confusion about its committed liabilities as well as the mechanism concerning flow of funds under the scheme.

Central Social Welfare Board (CSWB)

8.262 The Committee observed that CSWB was entrusted with the implementation of large number of schemes. The assignments had been spread to such an extent that CSWB had failed to devise proper monitoring mechanism for such schemes. CSWB was a central organisation directly under Ministry’s control and it was very surprising to the Committee that the Ministry had not made any effort to strengthen the network of CSWB. It would be a better situation, according to the Committee, if CSWB was asked to focus its attention on one specific assignment for a particular period of time. Declining Girl child ratio was a problem which was assuming alarming proportion nation-wide. The Committee noted some initiative had been taken by a few States for improving the lot of girl child. But some sort of scheme totally dedicated for development of girl child needed to be initiated at national level. The Committee felt that CSWB could play a major role by focusing on this social problem. Nationwide campaign by CSWB in co-ordination with all States Boards and other concerned agencies would have a lasting impact on the thinking of public at large. The issue of huge unspent balances with the different agencies of CSWB would be addressed in case its mandate was specifically defined. The Committee would, therefore, appreciate if the Ministry identified some focused subjects for implementation by CSWB.

Short Stay Homes (SSHs)

8.263 The Committee observed that a number of Short Stay Homes had to be discontinued due to bad performance. 10 organizations spread over in different States had been issued show cause notices. This confirmed Committee’s apprehension about the shortcomings of a scheme which was meant for the welfare of the down-trodden. The Committee strongly felt that the Government needed to play a more pro-active role in co-ordination with the State Governments so that the scheme was strengthened. Scheme may therefore be evaluated and revamped.

Swadhar

8.264 Although the scheme was picking up, however keeping in view the needy women of such categories, this achievement was just a drop in the ocean. The existence of such Homes needed more publicity. The scheme may be allocated more fund to finance more number of projects. The Committee recommended that at least one shelter home may be constructed in each Districts in the country.

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Rashtriya Mahila Kosh (RMK)

8.265 Progress in microfinance activity was pre-dominantly measured in terms of numbers covered, amounts saved, amounts lent and repayment rates, and not by results achieved in genuine economic development. There was need to assess the impact on the upliftment of women. The RMK should evaluate the scheme on these parameters. The Committee recommended that RMK should develop a pool of projects/ schemes/activities which were locally viable and implementable and which could generate income. The RMK could advise the beneficiaries to opt for any of these schemes which would be beneficial for them. The Committee felt that if such an option was available, the disbursement level would increase and the objectives of the scheme could be achieved.

8.266 The Committee was given to understand that a Sub Committee had been setup to examine different aspects of micro credit programmes, economic viability and sustainability of Kosh under RMK. In this connection, the Committee liked to recall its earlier recommendation with regard to lowering of interest rate on loans to be given by RMK. The Committee was surprised to note that Governing Body of RMK in its meeting held on 21.12.2005 decided that constitution of a Sub Committee for examination of various operational issues including lowering of interest rate be left to the discretion of MOS, Ministry of Women and Child Development and Chairperson, RMK. The Committee expressed its serious reservation on the handling of such a sensitive issue. The Committee strongly felt that the existing system under which RMK charges interest @ 8 % on reducing balance from borrowing agency which in turn charges any rate on or above 8% on reducing balance from the ultimate beneficiaries subject to maximum upto 18% needed to be reviewed at the earliest. One should not forget that the main objective of RMK was to provide micro credit support to poor women.

New Schemes

Scheme for Rescue of Victims of Trafficking

8.267 The Committee observed that allocation of Rs. 3.00 crore for this scheme was made in 2004-05 which was reduced to Rs. 30 lakhs in 2005-06. Allocation in 2006-07 stood at Rs. 45 lakhs. The Committee was not happy with the undue delay in launching of this scheme. The scheme needed more publicity and proper implementation. Since the scheme was to be implemented through NGOs, the Ministry had to be very careful while releasing funds. Monitoring of the scheme was to be strictly followed. The publicity should focus on protection and awareness-raising among parents and guardians.

Relief and Rehabilitation of Victims of Rape

8.268 The Committee felt that the victims of rape underwent the conditions of psychological stress and trauma notwithstanding the physical assault. The rehabilitation process of such victim involved psychological support as well as economic assistance. The Committee would like the Ministry to create a separate rehabilitation fund for victims of rape to ensure that they get all sort of psychological and economic assistance in time.

Prevention of Sexual Harassment at Workplace

8.269 The Government of India constituted a Central Committee under the Chairpersonship of the Secretary, Ministry of Women and Child Development to monitor the implementation of the Supreme Court’s Guidelines for prevention of Sexual Harassment of Women at Workplace. The Committee in its Meeting held on 29.10.2002 recommended that awareness needed to be given on this issue and this task had been assigned to National Commission for Women (NCW) and Central Social Welfare Board alongwith Ministry of Information and Broadcasting. The National Commission for Women had taken up sexual harassment of women at work place as one of the focal issues in the realm of promotion of gender equality and women's empowerment. The Commission had widely circulated the Visakha Judgement for compliance along with a code of conduct for workplace formulated by the NCW. The Committee was not aware of the activities/initiatives undertaken by the CSWB and Ministry of Information and Broadcasting to create awareness on the SC Guidelines. This had become all the more important in view of increasing incidents of sexual harassment in BPOs and other private institutions.

8.270 The Committee was constrained to observe that that the Supreme Court Guidelines had not been properly followed both by the Government Departments. In a number of cases, Complaint Committees had not been formed. Where these committees existed, they did not have 50 per cent reservation for women. Also in many cases the Committees were headed by men instead of women and without the involvement of a third party (NGO). Lack of awareness among the Members of the complaint Committee was also noticed. The Committee was of the firm view that Supreme Court directive needed to be implemented in letter and spirit. The Committee desired to have full details about the 799 organisations covered so far by the NCW alongwith the organizations where complaint Committees were yet to be set up. The Committee also desired to have an idea about the additional organizations covered by NCW. The Committee also recommended that the Ministry

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should come forward with a comprehensive legislation for prevention of sexual harassment in work places. The private institutions may also be brought under the purview of the legislations related to prevention of sexual harassment.

Nutrition

8.271 The Committee noted that the FNB provided training to the Anganwadi functionaries. However the Committee noticed huge gap between the target and achievement especially in case of training of grassroot level functionaries. The Committee wondered how the Ministry could take a casual approach to the gap reflected and let on increase in the number of malnourished children.

8.272 The Committee’s attention was drawn by the media reports appearing on regular basis about large number of deaths of children due to malnourishment in the tribal belts of different parts of the country. Such incidents showed the non existence of Government machinery in those areas which could effectively cater to the nutrition requirement of the poor and deprived sections of the Society. The Committee recommended that it was the bounden duty of the Government to ensure that not a single child was dying due to malnourishment especially in view of the facilities being provided through AWCs under ICDS. The Committee strongly felt that the FNB needed to train maximum number of functionaries of AWCs so as to sensitize them about the preventive measures to be taken in malnutrition cases of children and mothers. The Committee would appreciate if FNB made an effective beginning by targetting the functionaries of AWCs located in tribal belts.

National Nutrition Mission (NNM)

8.273 Committee noted that not much progress had been achieved in the implementation of the scheme. The Committee noted that the objectives of the mission were realistic in nature and if implemented in its totality a healthy child population would be the result. The Committee emphasized that the Ministry should make the scheme functional so as to achieve the desired result of nutrition in a time bound manner.

Gender Budgeting

8.274 The Committee recommended that being the nodal Ministry, the Ministry of WCD should ensure that Gender Budget Cells which were set up in the Ministries have become operational and also pursue this issue with the remaining Ministries.

8.275 The Committee desired to be apprised about the implementation status of the aforesaid initiatives taken by the Ministry.

8.276 Committee’s attention had been drawn by the details regarding scheme-wise provisions and physical targets benefiting women in the Budget of Ministry of Women and Child Development as given in the Performance Budget (2006- 07). The Committee found that all the schemes whether targeting children or women have been shown to be providing 100% benefit to women alone. The Committee does not dispute the fact that welfare of the child was ultimately the welfare of its mother. However, in view of the emerging concept of child budgeting, it cannot be claimed that flagship schemes like ICDS were benefiting cent percent women. The Committee recommended that the allocation on programmes and schemes benefiting women may be delineated specifically. The Committee also recommended that the components of gender budgeting may be made more clear and included in the guidelines for gender budgeting.

(e) 176th Report

Budgetary Allocation 8.277 The Committee noted that no allocation had been made for Training of Indian Athletes against its proposed allocation for Rs. 75 crores. Such sweeping cut might have some concrete reason. The Committee presumed that the Ministry had some contingency plans to arrange the finance for the Training of Indian Athletes for the forthcoming Asian, Commonwealth Games and other International events. The Committee desired to be apprised of such plans/scheme. 8.278 The Committee failed to understand the constraints being faced by the Department in the optimum utilisation of allocated funds for Youth and Sports related schemes. It remained a guess work for the Committee whether the under- utilisation is due to the inability of implementing agencies (both Govt. & private sector) to take the full benefit of these schemes or inherent flaws in the scheme itself are attributed to the same. The Committee observed that funds remained underutilised under the schemes of Promotion of Adventure Activities, Promotion of Scouting and Guiding, National Service Volunteer Scheme, Promotion of Youth Activities and Training, Rashtriya Sadhbhavna Yojana, Assistance to Rural Youth and Sports Clubs, Scheme for welfare and development of Adolescents, Grants to Sports Federations. What was more worrisome was that under Schemes like National Sports Championship for Women, National Welfare Fund for

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Sportspersons, Promotion of Sports among Disabled, Scheme relating to Talent Search and Training, Scheme for Dope Test, All India Council for Physical Education, and States Sports Academy expenditure remained nil. The Committee also found that provision made both under Youth and Sports Scheme for NE States remained underutilized.

8.279 The Committee could afford to conclude that even the formulation of a quarterly annual action plan for 2005- 2006 by the Ministry had not been able to achieve the desired results. It was the case of failure in planning. It appeared to the Committee that the Ministry remained engaged in projecting higher requirements and launching new schemes without any considerations of the judicious and optimum utilisation of funds allocated for the existing schemes. It was quite contradictory that on one hand the Ministry talk of resource crunch and on other hand the allocated resources were not fully utilized. Huge unspent balances were lying with the Ministry under various schemes. This fiscal disorder in the Ministry had done more harm. The case for higher allocations had weakened to a great extent. The Committee was of the view that a detailed review of all the ongoing schemes should be undertaken so as to assess the shortcomings being noticed and remedial steps be taken for removal of the same. Active involvement of the State Governments and other implementing agencies in this exercise is called for. The Committee would like the Ministry to adopt better fiscal management practices to avoid the last minute spending for achieving the targets.

National Commission for Youth

8.280 The Committee found the recommendations made by the Commission very useful in empowering the youth. Unfortunately not much progress had been made in the implementation of these recommendations. No follow-up action appeared to have been taken after the meeting with the officials of the Rashtriya Mahila Kosh on the feasibility of formulation of Rashtriya Yuva Kosh. Similarly the proposal with regard to amalgamation of NSS and NCC sent to the Planning Commission simply remained a referral. The Committee would like the Ministry to expedite the action on all recommendations particularly with regard to setting up of Rashtriya Yuva Kosh. The Committee felt that either the NCC or NSS should be made compulsory from class IXth.

Nehru Yuva Kendra Sangathan

8.281 The Committee noted that the achievement level both physical and financial under most of the programmes undertaken by NYKS did not present a healthy picture. In most of the cases the targets were fixed at very high level and the achievement level was very low. In some programmes the achievement level was even less than 10%. The Committee took a serious note of it and recommended that in future more realistic target level should be fixed. The Committee was constrained to note that the percentage of women beneficiaries in some of the States under certain programmes was even nil. The overall coverage of women amongst 8 million rural youth covered presently under NYKS was also poor. The Committee reiterated its earlier recommendation to enhance the level of female beneficiaries under various programmes run by NYKS.

8.282 The Committee appreciated successful operation of these two schemes aiming at computer awareness amongst the rural youth. However, the coverage as well as the spread of centers was not quite encouraging. Only 164 RITYDCs was put in place upto December, 2005 against a target of 500 centres during the entire plan period. The Committee had all doubts that the remaining 336 RITYDC would be set up by the end of 10th five-year plan. There was no denying the fact that the Ministry needed to fix such realistic targets, which were achievable. 8.283 The Committee regretted that this unhealthy trend of unspent balances in NYKS goes against the Ministry’s mandate for youth development planning. Under-utilisation of funds not only undervalued the scheme but also de-motivated the implementing agencies as well as the beneficiaries. It reflected poor level of coordination amongst the implementing agencies and ineffective monitoring at the Ministry’s level. The Ministry needed to take constructive steps to encourage the field level functionaries with a view to effectively plan the programmes round the year and implement them as per the prescribed norms.

8.284 The Committee noted that Nehru Yuvak Kendras were proposed to be set up in 123 uncovered Districts, 15 being in Orissa, 16 in UP, 10 in Arunachal Pradesh, 8 in Chhattisgarh and 8 in MP. The Committee was informed that a proposal involving annual expenditure of Rs. 492.67 lakhs and non-recurring one time expenditure of Rs. 123 lakhs for creation of 123x3 posts for these Kendras has been submitted to Ministry of Finance. The Committee would like to remind the Ministry on the controversies that arose during its last selection process of Youth Coordinators. The confusion and uncertainity over the last recruitment process was still not over. The Committee felt that the court cases pertaining to last recruitment of Youth Coordinators needed to be pursued vigorously for early settlement. The Ministry, needed to be equally cautious about its fresh proposal of recruitment with the Finance Ministry so that the process of selection remains transparent and does not raise any doubts. The Committee desired a status report on the issue to be submitted for its

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consideration. 8.285 The Committee had been emphasizing in its earlier Reports the need for strengthening the monitoring mechanism of NYKS by association of elected representatives. The Committee understood that instructions had been issued to the District Youth Coordinators to involve MPs, MLAs and other public representatives in the activities of NYKS. District Youth Coordinators were also supposed to send the minutes of the meetings of the District Advisory Committee for Youth Programmes to respective MPs/MLAs. The Committee desired to have an idea about the level of compliance of these instructions by the District Youth Coordinators.

National Service Scheme

8.286 An allocation of Rs. 31.50 crores was made for NSS under plan in 2006-2007 against a provision of Rs. 26.10 crores last year. The allocation for the year had been kept on higher side due to the increase in the enrolment of students in various universities and colleges. Also there was a proposal to introduce National Service Scheme from IXth class onwards. The Committee would like the Ministry to consider introduction of NSS from class IX itself in the light of noble objectives of the scheme. 8.287 The Committee understood that there was a need to deploy more number of National Service Volunteers who act as link between the Kendra and village based Rural Youth Clubs. The Committee strongly felt that it was high time for acknowledging the good work being done by NSS volunteers. Their efforts needed to be encouraged and commensurated with good incentives. The Committee, therefore, recommended that the incentive given to NSS volunteers should be enhanced and brought at par with the incentives provided to the NCC cadets so that they performed their duties with greater zest and vigour.

8.288 The role of State Liaison Cells was conceived as the fountainhead for ensuring timely release of grants, monitoring and liaison with the universities and +2 level councils. Non-existence of such Liaison Cells in some States itself indicated the plight of NSS activities. Perhaps the Ministry had failed to persuade the States/UTs in setting up such an important functionary of the scheme. The Committee would like the Ministry to impress upon the States the importance of the Liaisoning Cells and take up the matter at the highest level of those States not having set up these cells so far.

8.289 The Committee was of the view that the Ministry could no longer afford to be a mere spectator on the sensitive issues involving release of finances from the national exchequer. There was an urgent need to review the accounting procedure under NSS so that the defaulting States adopt proper fiscal disciplines.

National Discipline Scheme

8.290 The Committee regretted that repeated reminders from the Department to some States had not evinced any response and the issue of committed liabilities remains un-resolved for years together. The Committee felt that this situation of uncertainty should come to a halt. A time had come when the Ministry could fix a final deadline for such States to avoid this never-ending chaotic scenario. The Ministry should settle the issue once for all after paying the liabilities to those States who had furnished the information. The States who did not respond had to forgo their claims. The Committee hoped that the Ministry would plan the whole process to ensure settlement of committed liabilities within the financial year itself. The Committee would also like the Ministry to appeal to the States to avail this opportunity and expedite their claims without further loss of time.

Youth Hostels

8.291 The Committee noted that the allocations had not been utilised optimally. Main areas of concern had been the inordinate delay in construction process of Youth Hostels. The status of 18 Youth Hostels under construction indicated shocking revelations. There were Youth Hostels which were approved long back in 1986 and even instalments of central funds for construction were released. For instance an instalment of Rs.15 lakhs was released in March 1989 in respect of a Youth Hostel in Himachal Pradesh and the State Govt. had not even handed over the developed plot of land for construction of the project. Construction of Youth Hostel in Allahabad was approved in principle in April 1988, and State Government identified the land in 1998. First instalment of central funds amounting to Rs. 20.00 lakhs was released in March 1990 and the construction was yet to be completed. Position with regard to the remaining Youth Hostels was more or less the same. The Committee noted that even pursuing the issue with the concerned State Chief Secretaries had not brought any noticeable impact. The Committee observed that with the passage of time, estimates for construction kept on increasing steadily, leading to criminal wastage of Government funds.

8.292 The Committee recommended that specific action needed to be initiated to remedy the problem. Stringent action was required to be taken in respect of some places which ultimately will have its impact in other places also. Even the extreme step for recovery of the instalment to central pool may be contemplated in such cases where the construction work

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had not started even 3 years after the release of instalments(s). The Committee would like to have a status note on the utilisation of instalments released for all such incomplete projects.

Promotion of Youth Activities and Training

8.293 The Committee apprehended that the above pendency must have increased further in view of an expenditure of Rs. 9.66 crores being incurred under this scheme during 2004-05. The Committee had been given to understand that action had been taken to stop further grants to such organizations. The Committee would like to have the feedback from those NGOs who were not released further grant due to their past performance.

National Integration Programme

8.294 The Scheme provides the framework for greater exchange and understanding among the youth belonging to different regions of the country. The two components of this scheme were National Integration Camp and Inter State Youth Exchange Programme administered by NGOs and other agencies. The Committee noted that achievement level for both physical and financial targets had been by and large satisfactory. Additional funds were also being provided due to the tremendous response being received from the implementing agencies. During 2005-06, plan allocation of Rs. 4.95 crore was enhanced to Rs. 5.50 crore and actual expenditure reported upto 20th March 2006 was Rs. 5.11 crore. The Committee noted that provision of Rs. 10.00 crore had been made for the scheme for 2006-07. The Committee’s attention however, has been drawn by the status of pendency of utilization certificates spread over different States under this programme. As many as 27 UCs, 110 UCs and 120 UCs for 2002-03, 2003-04 and 2004-05 respectively were yet to be received from implementing agencies. These were the figures in respect of NGOs. Status of other implementing agencies was not known to the Committee. The Committee strongly felt that urgent action was required to be taken in this matter. Under no circumstances, defaulter NGOs should be provided further assistance.

Miscellaneous

8.295 The Committee would like to reiterate its earlier recommendation that any new scheme should be launched only after the completion of all the preliminary formalities.

Sports Authority of India (SAI)

8.296 The Committee was not convinced with the Ministry’s excuse for inadequate resources, when the allocation so received remain underutilised. Unfortunately the Ministry had not shared the utilization figures for the previous year with the Committee. Needless to say, the trend of unspent balances with SAI was quite disappointing a fact to suggest serious steps for restructuring of SAI to make it a more effective and professional body.

8.297 The Committee was dismayed to note that after conversion of NSTC Scheme from residential to day boarding, the intake of children in the scheme in most of the adopted regular schools both in individual as well as team event was quite less. The Committee was not sure whether proper consultations with all the stakeholders had taken place before finally converting the mode of scheme. The Committee was also not inclined to agree with Ministry’s argument that intake of children in the Navodaya Vidyalayas was far from satisfactory due to non-availability of talented children. Most of the NVs were located in the rural areas and it would be the weakness of Government’s Rural Sports Programme in case they fail to tap rural talent. The Committee, however, appreciated the role of ABSCs in providing job opportunities to those excelling in performance after attaining the age of 17 ½ years in the Indian Army. The Committee would like the Ministry to expand the coverage of the scheme in all States in view of its utility.

8.298 The Committee was unhappy with the low expenditure on traditional/indigenous games during the last three years. This fact was reflected in the drastic reduction of funds to these federations over the years. The Committee felt that there are no clear-cut guidelines to either State Governments or SAI centres about the promotion of indigenous games. The appraisal of these games was also not possible as no State-wise grant was released for the purpose. The continuous decline in allocation over the years itself indicates reluctance of Government towards these disciplines. The Committee was surprised on Ministry’s assertion that they were not short of funds. In fact, if it was so the Ministry should not have any problem in persuading the federations to avail optimum funds from the Government for promotion of indigenous games.

8.299 The Committee had been concerned about poor level of achievement in Olympics inspite of good performance at Asian and Commonwealth Games. The representatives of the Ministry clarified that pre-qualification standards in Olympic Games were very tough. To overcome the problem, the numbers of trainees were proposed to be increased from 10,000 to 15,000 in SAI training centers. Efforts were also on to strengthen the rural sports. At Panchayat level efforts were initiated

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so that the children from rural areas could also be benefited and got encouragement to join sports. It would be helpful in upgrading the skills of the talented, which was in abundance in rural areas. He assured that by adopting such measures more medals could be achieved in 2010 and 2014 Games. 8.300 The Committee understood that there were 5 main SAI centers in the country. However, of these centres i.e. NERC, Imphal still continued to function as a sub-centre as there was no full-fledged Director. The Committee was surprised at such peculiar status of the centre. The Committee was of the view that this centre would work better if it is declared as a full-fledged centre with adequate manpower and infrastructure.

8.301 The Committee was aware that there was no dearth of sporting talent in the country. Proper hunting/searching and nurturing of the talent was required. Talent was in abundance in schools and educational institutions. States were allocated funds for development of sports. But educational institutions did not have physical instructors. The Committee felt that the talent search process was not able to get the reach it required. People remain in dark about such exercise. Present system of selection had not yielded the desired results and the talent had still remained unspotted. The Central Government, State Government and the sport authorities should, therefore, give adequate publicity through advertisement to such events.

Promotion of Sports among Disabled

8.302 Only a token provision was made for the scheme in 2003-04, 2004-05 and 2005-06 as the scheme had not been formulated. The Committee had been given to understand that the scheme was likely to be included in the umbrella scheme related to events. Accordingly, no provision had been made in 2006-07. The Committee took strong exception to this kind of approach. This clearly indicated that the Ministry was not serious about the necessity of providing any kind of incentives to the disadvantaged segment of our society.

Sports Infrastructure Scheme

8.303 The Committee was not happy with this turn of events. The Committee liked to draw the attention of the Ministry towards its earlier recommendation about the non-advisability of transfer of such a vital scheme essential for developing the sports potential of our youth. The Committee reiterated that instead of transferring the scheme to the State sector, Ministry should focus more on the monitoring and effective implementation thereof. The Committee would like the Ministry to continue funding for rural sports infrastructure development to patronize the rural sports under its direct supervision.

Scheme for Dope Test

8.304 The Committee was constrained to note that at present, SAI had only 38 Sports Scientists including medical doctors. This strength of scientific personnel was not enough to provide optimum scientific support to the sports needs in the country. Sports-related scientific research and development in India had not been able to keep pace with international developments in various fields like Physiology, Psychology, Bio-mechanics etc. Greater attention was required to be given to research and development of sports science, in case India had to excel in sports at international level.

8.305 The Committee was aware of the recent doping incidents during international sports events. It was understood that out of 11 athletes 9 were found to be positive. This had become a recurring feature during the international championships and during every international event the country’s prestige was thus put at stake. Perhaps our sports administration had failed to make the players aware of the dire consequences if they were tested positive. These performance enhancing drugs had an adverse affect on their health and could even ruin them professionally. With the advent of technology dope testing methods have also faced new challenges. Undoubtedly it was a constant battle with technology. Test methods have become more and more sophisticated. To generate awareness amongst the players education was the best cure. The Committee felt that though the Ministry claimed that overall the doping instances had decreased from 4% to 2-½% but the recent instances put a shadow on such claims. The Committee hoped that the Ministry would endeavour to achieve all the international standards of dope testing towards fighting the malice of doping which degrades the prestige of the nation.

Grants to National Sports Federations

8.306 Undoubtedly the existing guidelines/byelaws did not have provision to recover the dues from the federations but this issue of prolonged non-payment needed to be addressed with some sort of authority. The Ministry should, therefore, revise its guidelines by either adding a clause for derecognition of defaulting NSF or authorising SAI to recover the dues from the NSF. A beginning should be made by recovery of outstanding electricity and water charges from such federations.

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Scheme Relating to ‘HIV/AIDS’

8.307 The Committee was happy to note the introduction of the scheme aimed at achieving victory over AIDS in India. The Committee felt that proper strategy should be developed to achieve the objectives of the scheme. Adolescent/youth clubs and youth information centers require proper back up of counseling and resource materials. The Committee underlined the need for establishment of linkages amongst all the field organizations with health facilities and VCTCs for service access. The Committee would like the Ministry to pursue the Planning Commission to seek in principle approval in respect of the scheme.

Commonwealth Games, 2010

8.308 The Committee recommended that the concerned agencies should be asked to expedite its planning and projections so that the annual break-up of funds required during next four years could be worked out. The special plan of action prepared in respect of imparting training to athletes should be finalized at the earliest. Committee would like to be apprised about the evaluation of performance of Indian athletes in the Commonwealth Games, 2006.

(f) 177th Report

Clause 1 (1)

8.309 The Committee, felt that the use of words ‘institute’ and ‘university’ together should be avoided. Instead it would be more appropriate to call the proposed Act in Clause 1(1) as “The English and Foreign Languages University Act, 2006”.

Clause 3(1)

8.310 In view of its recommendations for clause 1(1), the Committee proposed that the name of the proposed University be “English and Foreign Languages University”.

Clause 6(viii)

8.311 The Committee was of the considered opinion that the word “organization” in this clause left enough scope for including extraneous agencies/bodies as well. The Department clarified that the word ‘organization’ generally meant “a teaching or a research institution, other than a university”. The Committee felt that it needs to specified. It therefore, recommended that the word ‘organization’ may be substituted by the words ‘educational institution’ so as to remove any ambiguity about the nature of the organization.

Clause 30(1)(i)

8.312 The Committee recommended that the words ‘discipline and’ be deleted from line 12 of clause 30 (1) (i) of the Bill.

Clause 30(1)(j)

8.313 The Committee, therefore, recommended that the words ‘not for profit’ may be added before the word ‘agencies’ in page 10, line 15 of Clause 30 (1) (j). Clause 35(3)

8.314 The Committee, recommended that the following explanation may be added in the said sub-clause for removing the erroneous impression in this regard. “This does not preclude the employees from availing the remedies provided for under Articles 226 & 32 of the Constitution.”

Clause 39

8.315 The Committee was of considered opinion that ideally the composition/membership of these bodies should have

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been provided in the Statute itself as was done in the case of Allahabad University. In view of the fact that the composition of authorities of the university would be subsequently decided by the university bodies, the Committee wished to emphasise the need for having elected elements in all the bodies/authority of the university. The Committee, therefore, recommended that suitable mention for the purpose be made in the Bill at appropriate places. The Committee further recommended that an enabling provision must be provided in the Act itself to ensure democratization in true spirit.

Clause 46

8.316 The Committee was of the considered opinion that since the first officers and authorities of the university was to be appointed or nominated by the Central Government, their term of offices as provided in transitional provisions should not be long enough. The Committee noted that in some cases it was five years and in others it was three years. It, therefore, recommended that the term of office of the first Chancellor, the first Vice-Chancellor as well as other officers and bodies provided in various sub-clauses of Clause 46 on page 13 should be reduced from five and three years to three and two years respectively.

Clause 6 and 7 (b), (c) and (d) of the Statutes

8.317 The Committee noted that these provision of the Statute provided in the Schedule mention about College Development Council but this body was not amongst the authorities of the university. The Department clarified that it was mentioned ‘erroneously’. The Committee, therefore, recommended that name of this body be deleted from the above clauses.

Clause 17 of the Statutes

8.318 The Committee, recommended that a new sub-clause “atleast one person to be nominated by the Court” may be added immediately after line 11 of Clause 17 of the Statutes on page 22 of the Bill.

Clause 37 of Statutes

8.319 The Committee was of considered opinion that the Act must provide for elected representation of students, teachers and non-teaching staff in all authoritative bodies of the University and ensure their right to form associations. However, the Committee found no such provision for students. The Committee, therefore, recommended that the words ‘two elected representatives of students’ should found place in the constitution of the Student Council and Clause 37 be redrafted accordingly.

(g) 178th Report

Clause 5 (d)

8.320 The Committee recommended that the service conditions of the employees should have uniform application in all the NITs. Accordingly, the Department should bring necessary change in the clause with a view to ensuring uniformity in service conditions, pensions etc. in all the Institutes.

8.321 The Committee was also wary of the words “duly altered by the statutes” in page 2, line 45 of Clause 5 (d). The Committee felt that this provided scope to alter to the disadvantage of the tenure employees in terms of their remuneration and conditions of service. The Committee recommended that it must be ensured that alteration in service conditions should not be to the disadvantage of the employees. Accordingly, clause 5 (d) may be redrafted.

8.322 The Committee strongly felt that the Pension Scheme should be made applicable to all the NITs only exception being those employees who joined service on or after 01.01.2004. All the RECs after getting the status of NITs had the same mandate and enjoyed the same status and performed the same functions. This uniformity should be extended to the service conditions of employees also. One time exception can be made and the Department should pursue this issue if need be, at the highest level so that rightful demands of employees of NITs of Kurukshetra, Jalandhar and Silchar were accepted.

Clause 6

8.323 The Committee recommended that a new sub clause enabling the Institutes to undertake consultancy in the areas/ disciplines relevant to the Institutes may be added.

Clause 6 (1) (n)

8.324 The Committee was of the considered opinion that objects of the Institute be clearly defined in the Bill itself at

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appropriate place.

Clause 9 (3)

8.325 As per clause 9(3), the Institute shall be bound to comply with the directions issued by the Visitor. However, no time-frame had been indicated. The Committee therefore, recommended that the words “within reasonable time” may be added in page 4, line 9 of Clause 9 (3) after the words “.... with such directions”.

Clause 11

8.326 The Committee was of the considered opinion that State’s say in representation in BOG appears to be negligible in the Bill. The Committee recommended that suitable addition be made for consultation with State Governments in Clause 11.

Clause 11 (a)

8.327 Clause 11 specified the composition of the Board of Governors. The Committee was of the view that the Chairperson of the Board of Governor should be an eminent person in the technical field. The Committee recommended that this fact must be mentioned appropriately in clause 11 (a) itself.

Clause 11 (f)

8.328 The Committee recommended that instead of two professors, one Professor and one Reader/Lecturer may be nominated to the Board of Governors. Clause 11 (f) may be modified accordingly.

Clause 12 (c)

8.329 The Committee recommended that the term of office of a member nominated under clause (f) of Section 11 shall be made two years from the date of his/her nomination.

Clause 12 (f)

8.330 The Committee recommended that the Bill should clearly specify maximum period in which such nomination had to be done. The Committee recommended that insertion to this effect be made in the Bill at appropriate places.

Clause 13 (2) (f)

8.331 The Committee felt that it would be better if this power of the Council were a little moderated. The Committee, therefore, recommended that the words “and the Council shall ordinarily accept the statement made to it” be added after the words “…development plans” in page 5, line 15 of Clause 13 (2) (f).

Clause 14 (d)

8.332 Clause 14 provided for the constitution of the Senate. As per sub-clause (d), three persons, not being employees of the Institute were to be nominated by the Chairperson in consultation with the Director. The Committee strongly felt that under this category, one member should be a woman. The Committee, accordingly, recommended that the words “one of whom to be woman” may be added after the words “three persons” in page 5, line 25 of clause 14 (d).

Clause 14 (e)

8.333 The Committee recommended that the Statutes must provide for the representation of students in the Senate. The Committee accordingly, recommended that the words “and students” be added after the words “…of the Staff ” in page 5, line 28 of clause 14 (e).

8.334 The Committee further recommended that the Statutes in this regard must also provide for election of staff and students on the Senate. The staff and students should be elected rather than being nominated on the Senate.

Clause 17

8.335 The Committee, therefore, recommended that a term of five years may be specified for the Director and Deputy

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Director in Clause 17 of the Bill.

Clause 18

8.336 The Committee was of the considered opinion that the Registrar should be taken on deputation for a period of three years. The Committee, accordingly, recommended the Department to redraft Clause 18 suitably.

Clause 25

8.337 The Committee, therefore, recommended that Clause 25 (g) be suitably amended in the Bill so that there was uniformity on the subject contained in Clause 25 (g) across the board.

8.338 The Committee also took note of Clause 25 (n) whereunder matters regarding the meetings of the Board, the Senate, or any Committee, the quorum at such meetings and the procedure to be followed in the conduct of their business was to be laid down in the Statutes. The Committee was of the view that the subject matter contained in Clause 25 (n) be placed in the Bill itself and laid out clearly. Necessary amendments may, accordingly, be made in the Bill.

Clause 26(1)

8.339 The Committee recommended that the words “Central Government” be substituted by the word ‘Council’ in page 7, line 33 of clause 26 (1).

Clause 29

8.340 The Committee was of the considered opinion that the option granted to the Institute to refer the dispute for arbitration can be exploited against the wishes of the aggrieved employee who might be inclined to approach the court. The Committee, therefore, recommended that the words “or at the instance of the Institute” may be deleted from page 8, line 26 of clause 29 (1).

8.341 The Committee was aware that no Act can debar the remedies available under Articles 226 and 32 of the Constitution. The Bill also doesn’t intend to do this. The Committee, however, recommended that the following Explanation may be added in the said sub-clause for removing the erroneous impression in this regard.

“This does not preclude the employees from availing the remedies provided for under Articles 226 & 32 of the Constitution.”

Chapter III — The Council

Clause 30

8.342 The Committee recommended that the Department may suitably redraft the Bill to ensure that the Council meets at least once every year.

Clause 35 (a)

8.343 The Committee was of the considered opinion that saving any act or proceeding of a body despite a defect in its constitution was likely to be misused. The Committee, therefore, recommended that this provision may be redrafted suitably so that no act or proceeding gets validated despite a defect in the constitution of any decision-making bodies or any defect in the election, nomination or appointment of a person acting as a member of these bodies.

(h) 179th Report

Clause 5(ix)

8.344 The Committee was of the considered opinion that the word ‘organization’ in this clause left some scope for different interpretations. The Department clarified that the word ‘organization’ generally meant ‘a teaching or a research institution, other than a university.’ The Committee felt that this needs to be specified in the Bill with a view to remove any ambiguity about the nature of the organization.

Clause 5(xix)

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8.345 The Committee felt that the provision of the clause amounts to giving unbridled powers to the University for conferring autonomous status on a College, an Institution or a Department. The Committee was of the opinion that some kind of requirements and conditions necessary for making an institution autonomous may be specified. The Committee, therefore, recommended that Clause 5(xix) may be suitably amended.

Clause 21 (1)

8.346 The Committee felt that the Court being the apex body of the university, provision for its constitution and term of office of its members be provided in the first statutes itself.

Clauses 22(2), 23(2), 24(2), 25 and 26

8.347 The Committee noted that the Executive Council, Academic Council, College Development Council, Board of Studies and Finance Committee are the important decision-making bodies of the University. The Statutes appended to the Bill contain provisions only about the powers and functions of these bodies but was silent about their constitution and term of office. The Committee, therefore, recommended that the provisions for the constitution and term of office of the Executive Council, Academic Council, College Development Council, Board of Studies and Finance Committee, also be included within corpus of the first Statutes itself.

Clause 30(1)(i)

8.348 The Committee found that this sub-clause provides for making special arrangements ‘for the residence, discipline and teaching of women students.’ The Committee was of the considered opinion that while this was valid in terms of residence and specific courses for women students, the word ‘discipline’ in this clause appears to be discriminatory; hence unnecessary. Accordingly, the Committee recommended that the word ‘discipline’ be deleted from clause 30 (1) (i), page 10 of the Bill.

Clause 30(1)(k)

8.349 The Committee felt that the words ‘other agencies’ left ample scope for associating with agencies which might be private and for profit. The Committee, therefore, recommended that the words ‘not for profit’ may be appropriately added in page 10, line 25 of Clause 30 (1) (k).

Clause 35(3)

8.350 The Committee felt that Clause 35(3) gave an impression that the employees are debarred from all other judicial remedies against the decision of the Tribunal. The Committee was aware that no Act can debar the remedies available under Articles 226 and 32 of the Constitution. The Bill also did not intend to do this. The Committee, however, recommended that the following explanation may be added in the said Clause for removing the erroneous impression in this regard.

‘This does not preclude the employees from availing the remedies provided under Articles 226 and 32 of the Constitution’

Clause 35 (3) may, accordingly, be amended.

Clause 39

8.351 The Committee noted that the Bill nowhere mentions about an elected membership of any authority of the University. The Committee was of considered opinion that ideally, the composition/membership of these bodies should have been provided in the Statute itself as was done in the case of Allahabad University. In view of the fact that the composition of authorities of the university would be subsequently decided by the university bodies, the Committee wished to emphasize the need for having elected elements in all the bodies/authorities of the university. The Committee, therefore, recommended that suitable mention for the purpose be made in the Bill at appropriate places. The Committee further recommended that an enabling provision must be provided in the Act itself to ensure democratization of various bodies of the University.

Clause 42

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8.352 The Committee felt that the words ‘good faith or intended to be done in pursuance of any of the provisions of this Act, the Statutes or the Ordinances’ were vague and left scope for misuse as interpretation of ‘good faith’ could be subjective. The Committee, therefore, recommended that the ambit of the words ‘good faith or intended to be done in pursuance of any of the provisions of this Act, the Statutes or the Ordinances’ may be spelt out in clear terms.

Clause 46

8.353 The Committee was of the considered opinion that since the first officers and authorities of the university were to be appointed or nominated by the Central Government, their term of offices as provided in transitional provisions should not be long enough. The Committee noted that in some cases it was five years and in others it was three years. It, therefore, recommended that the term of office of the first Chancellor, the first Vice-Chancellor as well as other officers and bodies provided in various sub-clauses of Clause 46 on page 13 should be reduced from five and three years to three and two years respectively.

The Schedule

Clauses 2(1) and 2(2) of the Statutes

8.354 The Committee found that the Statute were silent about the background of the persons to be placed on the panel for appointment as Vice-Chancellor. The Committee, therefore, recommended that the background of the persons who could be placed on the panel for appointment as Vice-Chancellor of the University may be indicated in the Bill itself. The Committee further recommended that a nominee of the Court should also be included in the Selection Committee for appointment to the post of Vice-Chancellor.

Clause 9 of the Statutes

8.355 The Committee recommended that the Librarian’s retirement age should also find place in the Bill.

Clause 17 of the Statutes

8.356 The Committee opined that University Court being an important body should have representation in the Finance Committee. The Committee, therefore, recommended that a new sub-clause ‘at least one person to be nominated by the Court’ may be added immediately after line 43 of Clause 17 of the Statutes on page 21 of the Bill.

Clause 18(2) of the Statutes

8.357 The Committee was aware that the Heads of the Department are appointed generally by seniority and rotation. It could, therefore, be possible that a Reader happens to be the Head of the Department when the process for appointment to the post of Professor was underway. The Committee, therefore, recommended that the words ‘if he was a professor’ may be appended to (ii) of Column 2 of Table against the heading ‘Professor’.

Clause 29(1) of the Statutes

8.358 The Committee felt that the provisions of Clause 29(1) of the Statutes and Clause 36(1) of the principal Act appear to be contradictory. The Committee, therefore, recommended that the provisions of the Clauses may be suitably re-drafted to remove the inherent contradictions, if any.

Clause 39(1) of Statutes

8.359 The Committee recommended that the words ‘two elected representatives of students’ should find place in the constitution of the Student Council and Clause 39, page 29, be re-drafted accordingly.

(i) 180th Report

Clause 6(ix)

8.360 The Committee was of the considered opinion that the word ‘organization’ in this clause left some scope for different interpretations. The Department clarified that the word ‘organization’ generally meant ‘a teaching or a research

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institution, other than a university.’ The Committee felt that this needs to be specified in the Bill with a view to remove any ambiguity about the nature of the organization. Clause 6(xix)

8.361 The Committee felt that the provision of the clause amounted to giving unbridled powers to the University for conferring autonomous status on a College, an Institution or a Department. The Committee was of the opinion that some kind of requirements and conditions necessary for making an institution autonomous may be specified. The Committee, therefore, recommended that Clause 6(xix) may be suitably amended.

Clause 22 (1)

8.362 The Committee felt that the Court being the apex body of the university, provision for its constitution and term of office of its members be provided in the first statutes itself.

Clauses 23(2), 24(2), 25(2), 26 and 27

8.363 The Committee noted that the Executive Council, Academic Council, College Development Council, Board of Studies and Finance Committee were the important decision-making bodies of the University. The Statutes appended to the Bill contain provisions only about the powers and functions of these bodies but was silent about their constitution and term of office. The Committee, therefore, recommended that the provisions for the constitution and term of office of the Executive Council, Academic Council, College Development Council, Board of Studies and Finance Committee, also be included within corpus of the first Statutes itself. Clause 31(1)(i)

8.364 The Committee found that this sub-clause provides for making special arrangements ‘for the residence, discipline and teaching of women students.’ The Committee was of the considered opinion that while this was valid in terms of residence and specific courses for women students, the word ‘discipline’ in this clause appears to be discriminatory; hence unnecessary. Accordingly, the Committee recommended that the word ‘discipline’ be deleted from clause 31 (1) (i) of the Bill. Clause 31(1)(k)

8.365 The Committee felt that the words ‘other agencies’ left ample scope for associating with agencies which might be private and for profit. The Committee, therefore, recommended that the words ‘not for profit’ might be appropriately added in page 11, line 17 of Clause 31 (1) (k). Clause 36(3)

8.366 The Committee felt that Clause 36(3) gave an impression that the employees were debarred from all other judicial remedies against the decision of the Tribunal. The Committee was aware that no Act could debar the remedies available under Articles 226 and 32 of the Constitution. The Bill also did not intend to do this. The Committee, however, recommended that the following explanation might be added in the said Clause for removing the erroneous impression in this regard.

‘This does not preclude the employees from availing the remedies provided under Articles 226 and 32 of the Constitution’

Clause 36 (3) may, accordingly, be amended.

Clause 40

8.367 The Committee noted that the Bill nowhere mentions about an elected membership of any authority of the University. The Committee was of considered opinion that ideally, the composition/membership of these bodies should have been provided in the Statute itself as was done in the case of Allahabad University. In view of the fact that the composition of authorities of the university would be subsequently decided by the university bodies, the Committee wished to emphasize the need for having elected elements in all the bodies/authorities of the university. The Committee, therefore, recommended that suitable mention for the purpose be made in the Bill at appropriate places. The Committee further recommended that an enabling provision must be provided in the Act itself to ensure democratization of various bodies of the University.

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Clause 43

8.368 The Committee felt that the words ‘good faith or intended to be done in pursuance of any of the provisions of this Act, the Statutes or the Ordinances’ were vague and left scope for misuse as interpretation of ‘good faith’ could be subjective. The Committee, therefore, recommended that the ambit of the words ‘good faith or intended to be done in pursuance of any of the provisions of this Act, the Statutes or the Ordinances’ may be spelt out in clear terms.

Clause 47

8.369 The Committee was of the considered opinion that since the first officers and authorities of the university were to be appointed or nominated by the Central Government, their term of offices as provided in transitional provisions should not be long enough. The Committee noted that in some cases it was five years and in others it was three years. It, therefore, recommended that the term of office of the first Chancellor, the first Vice-Chancellor as well as other officers and bodies provided in various sub-clauses of Clause 47 on page 14 should be reduced from five and three years to three and two years respectively.

The Schedule

Clauses 2(1) and 2(2) of the Statutes

8.370 The Committee found that the Statute were silent about the background of the persons to be placed on the panel for appointment as Vice-Chancellor. The Committee, therefore, recommended that the background of the persons who could be placed on the panel for appointment as Vice-Chancellor of the University might be indicated in the Bill itself. The Committee further recommended that a nominee of the Court should also be included in the Selection Committee for appointment to the post of Vice-Chancellor.

Clauses 9 of the Statutes

8.371 The Committee recommended that the Librarian’s retirement age should also find place in th Bill.

Clause 17 of the Statutes

8.372 The Committee opined that University Court being an important body should have representation in the Finance Committee. The Committee, therefore, recommended that a new sub-clause ‘at least one person to be nominated by the Court’ might be added immediately after line 6 of Clause 17 of the Statutes on page 23 of the Bill.

Clause 18(2) of the Statutes

8.373 The Committee was aware that the Heads of the Department were appointed generally by seniority and rotation. It could, therefore, be possible that a Reader happened to be the Head of the Department when the process for appointment to the post of Professor was underway. The Committee, therefore, recommended that the words ‘if he was a professor’ might be appended to (ii) of Column 2 of Table against the heading ‘Professor’.

Clause 29 (1) of the Statutes

8.374 The Committee felt that the provisions of Clause 29(1) of the Statutes and Clause 37(1) of the Principal Act appeared to be contradictory. The Committee, therefore, recommended that the provisions of the Clauses might be suitably re-drafted to remove the inherent contradictions, if any.

Clause 39 (1) of Statutes

8.375 The Committee recommended that the words ‘two elected representatives of students’ should find place in the constitution of the Student Council and Clause 39, page 30 be re-drafted accordingly. (j) 181st Report

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Clause 2(d) & 2(e)

8.376 The Committee noted that the definitions for ‘Approved Institution’ and ‘Approved Teachers’ provided in 2(d) and 2(e) on page 2 were not explicit and left some scope for confusion. On a specific query in this regard, the Committee was informed that the basis for inclusion of these two definitions in the Bill was the existing provision under the State University Act. It was clarified that due to lack of higher educational institutions in the State, some institutions in the State were approved for grant of certificate and diploma courses. It was envisaged to continue with the existing facilities till the time higher educational institutions were made operational. The Committee was, however, not convinced by the justification given by the Department. With the State University getting the status of Central University, any institution existing anywhere could get the approved status. The Committee, therefore, was of the view that there was need to amplify the definitions of the terms ‘Approved Institution’ and ‘Approved Teachers’ with a view to removing possible ambiguities in these regards. The Committee, therefore, recommended that necessary amendments should be brought in the relevant provision of the Bill for this purpose.

Clause 6(ix)

8.377 The Committee was of the considered opinion that the word ‘organization’ in this clause left some scope for different interpretations. The Department clarified that the word ‘organization’ generally meant ‘a teaching or a research institution, other than a university’. The Committee felt that this needed to be specified in the Bill with a view to remove any ambiguity about the nature of the organization.

Clause 6(xix)

8.378 The Committee felt that the provision of the clause amounted to giving unbridled powers to the University for conferring autonomous status on a College, an Institution or a Department. The Committee was of the opinion that some kind of requirements and conditions necessary for making any institution autonomous may be specified. The Committee, therefore, recommended that Clause 6(xix) may be suitably amended.

Clause 22(1)

8.379 The Committee felt that the Court being the apex body of the university, provision for its constitution and term of office of its members be provided in the first statutes itself.

Clauses 23(2), 24(2), 25(2), 26 and 27

8.380 The Committee noted that the Executive Council, Academic Council, College Development Council, Board of Studies and Finance Committee are the important decision-making bodies of the University. The Statutes appended to the Bill contain provisions only about the powers and functions of these bodies but is silent about their constitution and term of office. The Committee, therefore, recommended that the provisions for the constitution and term of office of the Executive Council, Academic Council, College Development Council, Board of Studies and Finance Committee, also be included within corpus of the first Statutes itself.

Clause 31(1)(i)

8.381 The Committee found that sub-clause (i) on page 11 provides for making special arrangements “for residence, discipline and teaching of women students.” The Committee was of the considered opinion that while this was valid in terms of residence and specific courses for women students, the word ‘discipline’ in this clause appeared to be discriminatory; hence unnecessary. Accordingly, the Committee recommended that the words ‘discipline’ be deleted from clause 31(1)(i), page 11 of the Bill. Clause 31(1)(k) 8.382 The Committee felt that the word ‘other agencies’ left ample scope for associating with agencies which might be private and for profit. The Committee, therefore, recommended that the words ‘not for profit’ may be appropriately added in page 11, line 8 of Clause 31 (1) (k). Clause 36(3) 8.383 The Committee felt that Clause 36(3) gave an impression that the employees were debarred from all other judicial remedies against the decision of the Tribunal. The Committee was aware that no Act could debar the remedies available under Articles 226 and 32 of the Constitution. The Bill also did not intend to do this. The Committee, however,

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recommended that the following explanation may be added in the said Clause for removing the erroneous impression in this regard. ‘This does not preclude the employees from availing the remedies provided under Articles 226 and 32 of the Constitution’ Clause 36 (3) may, accordingly, be amended. Clause 40 8.384 The Committee noted that the Bill nowhere mentioned about an elected membership of any authority of the University. The Committee was of considered opinion that ideally, the composition/membership of these bodies should have been provided in the Statute itself as was done in the case of Allahabad University. In view of the fact that the composition of authorities of the university would be subsequently decided by the university bodies, the Committee wished to emphasize the need for having elected elements in all the bodies/authorities of the university. The Committee, therefore, recommended that suitable mention for the purpose be made in the Bill at appropriate places. The Committee further recommended that an enabling provision must be provided in the Act itself to ensure democratization of various bodies of the University.

Clause 43 8.385 The Committee felt that the words ‘good faith or intended to be done in pursuance of any of the provisions of this Act, the Statutes or the Ordinances’ were vague and left scope for misuse as interpretation of ‘good faith’ could be subjective. The Committee, therefore, recommended that the ambit of the words ‘good faith or intended to be done in pursuance of any of the provisions of this Act, the Statutes or the Ordinances’ may be spelt out in clear terms. Clause 47 8.386 The Committee was of the considered opinion that since the first officers and authorities of the university were to be appointed or nominated by the Central Government, their term of offices as provided in transitional provisions should not be long enough. The Committee noted that in some cases it was five years and in others it was three years. It, therefore, recommended that the term of office of the first Chancellor, the first Vice-Chancellor as well as other officers and bodies provided in various sub-clauses of Clause 47 on page 14 should be reduced from five and three years to three and two years respectively. The Schedule Clauses 2(1) and 2(2) of the Statutes

8.387 The Committee found that the Statute was silent about the background of the persons to be placed on the panel for appointment as Vice-Chancellor. The Committee, therefore, recommended that the background of the persons who could be placed on the panel for appointment as Vice-Chancellor of the University might be indicated in the Bill itself. The Committee further recommended that a nominee of the Court should also be included in the Selection Committee for appointment to the post of Vice-Chancellor.

Clause 9 of the Statutes

8.388 The Committee recommended that the Librarian’s retirement age should also find place in the Bill.

Clause 17 of the Statutes 8.389 The Committee recommended that a new sub-clause ‘at least one person to be nominated by the Court’ may be added immediately after line 1 of Clause 17 of the Statutes on page 23 of the Bill.

Clause 18(2) of the Statutes

8.390 The Committee recommended that the words ‘if he is a professor’ may be appended to (ii) of Column 2 of Table against the heading ‘Professor’.

Clause 30(1) of the Statutes

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8.391 The Committee felt that the provisions of Clause 30(1) of the Statutes and Clause 37(1) of the Principal Act appear to be contradictory. The Committee, therefore, recommended that the provisions of the Clauses may be suitably re-drafted to remove the inherent contradictions, if any.

Clause 40(1) of Statutes

8.392 The Committee recommended that the words ‘two elected representatives of students’ should find place in the constitution of the Student Council and Clause 40 on page 30 be re-drafted accordingly.

(k) 182nd Report

8.393 The Committee was of the firm view that confining its Report only on the proposed amendments would perhaps not serve the purpose. Keeping in view the sensitiveness of the subject, task of the Committee would hardly be complete if these issues were also not commented upon. Accordingly, some general issues inextricably linked with the problem have also found place in the Report.

Clause 2 sub clause (iii)

Modification of definition of prostitution under Section 2(f) of the Principal Act.

8.394 The Committee felt that present definition was too wide particularly due to addition of the words "any other kind". The Committee, therefore, recommended that the proposed definition of ‘prostitution’ in section 2(f) needed a re-look, keeping in mind the purpose and intent of legislation and redrafted to avoid any ambiguity.

Clause 6 Insertion of new Section 5A to define trafficking in persons

8.395 As regards including trafficking in areas other than for sexual purposes, in the Bill, the Committee while agreeing with the argument in principle, wished to emphasize that, it might not be possible to do so in this amending Bill. The Committee, however, felt that there was a strong case for bringing separate legislation(s) to cover other forms of trafficking in persons other than for prostitution. The Committee had been given to understand that the Ministry was in the process of preparing an Omnibus Bill on Offences against the child, which would cover trafficking of all kinds. The Committee recommended that this Bill should be brought before Parliament at the earliest.

8.396 The Committee, therefore, recommended that while redrafting the definition of trafficking, the words "inducement of religious and social nature" may also be included appropriately in Section 5A to prevent cases of trafficking driven by religious beliefs and other social practices.

Section 5 B Punishment for trafficking in persons

8.397 The Committee recommended that Section 5B (1) should accordingly be amended to read as under: Any person who commits trafficking in person shall be punishable on first conviction with rigorous imprisonment for a term which shall not be less than 7 years for trafficking in adults and not less than 10 years for trafficking in children and in the event of a second or a subsequent conviction with imprisonment for life.

Section 5C Punishment for visiting brothel

8.398 This ambiguity, the Committee noted, was further confounded, as the term "sexual exploitation" had not been defined in the Bill. The words" for the purpose of sexual exploitation of any victim of trafficking" would allow the enforcement agencies to determine "victims of trafficking" and the intention of the visitor to 'sexually exploit' at the time of arresting. It would also lead to harassment of every person who visited a brothel irrespective of the object of his visit.

8.399 The Committee apprehended that such ambiguous language in the provision might lead to indiscriminate arrests and harassment of any person found in a brothel.

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8.400 The Committee found that even the Ministry had admitted that it was very unlikely that a distinction could be made between a trafficked person and a person who was there voluntarily, as victims do not confess to be trafficked, being constantly under blackmail, threat and intimidation. The Committee was of the view that it was a cardinal principle of criminal law that what constituted an offence must be clear, not vague. The Committee, therefore, recommended that section 5C needs to be revisited for removing all the ambiguities and addressing the concerns expressed in respect thereto. It would be better if the terms "trafficked victim" and "commercial sexual exploitation" were defined precisely in the Bill itself.

8.401 The Committee was inclined to agree with the contention of the Ministry that apprehensions of all concerned about the adverse impact of proposed Section 5C on HIV/AIDS control programme did not seem to be fully correct. The Committee would however, liked to point out that interventions for prevention of HIV/AIDS should be mainstreamed to target the sex workers who were not brothel based and not only restricted to brothels as then the majority of sex workers would be left out of the ambit of these interventions.

Clause 9 Deletion of Section 8

8.402 The Committee in principle agreed for the removal of section 8 i.e. to protect the victims from further victimization. However, the Committee recommended that a suitable clause may be added in the Bill itself to take action against the pimps, procurers, perpetrators, agents and other exploiters with self- interest, for soliciting.

Clause 10, Sub Clause (ii)

8.403 The Committee felt that the whole aspect of corrective homes appeared to be a medieval concept, which had to be rejected on the basis of the changing positions and changing perceptions about the women. We could not, on the one hand, say that women were victims and then send the victims for seven years incarceration on the other. This was more as imprisonment than a rehabilitation or relief. The Committee recommended that instead of corrective institutions the Government should create rehabilitation homes where opportunity for seeking an alternative livelihood with the women's consent was provided so as to prepare the victims to live life in mainstream.

Clause 11

8.404 The Committee found it difficult to believe that it was being done mainly due to paucity of adequate number of Inspectors; whereas Sub-Inspectors were readily available. There existed a provision for appointing special police officers for this purpose. The Committee, therefore, recommended that the rank of the special police officers may be retained as Inspector. The Committee also recommended that more lady police officers may be appointed to deal with the crimes under ITPA. The Government should initiate a training and sensitization programme for such officials to ensure that the victims who were already under trauma may be saved from further harassment.

Clause 12 — Insertion of Section 13A and 13B

8.405 The Committee recommended that the composition and powers of the authorities might be spelt out in the Bill itself. Furthermore, it should be mandatory on the Central and State Governments to set up these authorities in a fixed time frame as at present Section 13A and 13B leave it fully at the discretion of the respective governments. Accordingly the Committee recommended that the word 'may' should be replaced by the word 'shall' in the first lines of Section 13A and 13B.

8.406 The Committee further recommended that these authorities should also comprise social workers including members of women's organizations, health workers, and other concerned sections of the Society including prostitutes themselves.

Clause 16 ― In camera proceedings

8.407 The Committee, therefore, felt that someone whom they find secure with and have trust in should always be allowed to be present with them during these proceedings. The Committee, therefore, recommended that appropriate provision in this regard should be added in Section 22 after sub-section (2).

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General

8.408 The Committee strongly felt that there was an urgent need for having a complete re-look at the Immoral Traffic (Prevention) Act, 1956 touching upon all conceivable aspects. An attempt had been made through the proposed amendments to bring the serious problem of trafficking under the Act. The Committee, however, liked to point out that this can be only considered a half-hearted attempt as the cross-border dimensions of problem of trafficking had remain untouched.

8.409 The Committee found that ITPA did not contain any special provisions relating to children, particularly with respect to the treatment of rescued children. Secondly, the Committee was also given to understand that since the definition of ‘prostitution’ as given under the Act simply mentions persons, it was presumed to include children. Under the Act, a victim of commercial sexual exploitation could also be prosecuted because the law did not state whether children forced into prostitution were victims or offenders. Committee’s attention was drawn to the case of Prerna V/s State of Maharashtra, Criminal Writ Petition 788 of 2002, whereunder, the Bombay High Court ordered that children who were found soliciting should be treated as children in conflict with the law under the Juvenile Justice Court. The Committee was of the firm view that this grey area about the legal position about child prostitutes needs to be thoroughly looked into and adequate provisions safeguarding the interests of child prostitutes need to be included in the Act.

8.410 However, details made available to the Committee revealed a very discouraging scenario. Total number of beneficiaries under these schemes which included trafficked victims was only 33,823. The Committee could only conclude that benefits of these schemes were not reaching the trafficked victims. 8.411 The Committee, therefore, recommended that the law needed to be reviewed to make a distinction between living ‘on’ and living ‘off’ the earnings of a prostitute. While legal safeguards needed to be provided to prevent extortion of money from a prostitute, her right to incur expenditure voluntarily had to be safeguarded.

8.412 The Committee observed that this ‘Plan of Action’ included all the action points required for rehabilitation namely, prevention, trafficking, awareness generation and social mobilization, health care services, education and child care, housing, shelter and civic amenities, economic empowerment, rescue and rehabilitation. The Committee was not aware about the status of this Plan of Action. The Committee was of the view that implementation of this Plan of Action by all the concerned authorities with close monitoring by the Ministry would ultimately prove effective in the quality of life of victims of trafficking.

8.413 Sensitization and awareness among the prosecutors and the police, according to the committee, was one of the most important component as far as implementation of this law is concerned. There are manuals of training programmes and the Committee would like the Ministry of Women and Child Development to urgently put such manuals on its website.

8.414 The Committee, however, felt that time had come for NACO to reinvent its strategy to widen its reach to people other than the women in the brothels in the backdrop of the fact that commercial exploitation had widened, it had gone up from lower level to higher level.

8.415 The Committee appreciated the consistent and untiring efforts of NACO in containing dreaded disease like HIV/AIDS. The Committee also emphasized the need to broad-base the current approach of National Aids Control Programme so as to include important aspects such as rescue, skill-building, rehabilitation and re-integration of the vulnerable groups. There was, therefore, need to revisit the strategy and to evolve a suitable methodology for arresting the menace. The Committee was of the view that impact of National Aids Control Programme amongst sex-workers would be more visible if involvement of Ministry of Women and Child Development was also there. The Committee, therefore, recommended that an inbuilt component in this regard might be included in the Programme.

8.416 The Committee recommended that the government should create a special fund for welfare/rehabilitation/healthcare and education of the sex workers as well as their children.

8.417 The Committee found that it was mainly the attitude and mindset of the people vis-à-vis the sex workers which was largely responsible for this. People still looked down upon them as culprits not as victims; there was a clear-cut lack of sympathy and cooperation with them. The Committee in such a situation strongly felt that there was an urgent need for undertaking public awareness measures at every level including the schools and colleges to treat sex workers as a normal human being. Such an environment, if generated, would go a long way in integrating the sex workers into the mainstream.

8.418 The Committee recommended that the Bill may be passed after incorporating the amendments/additions suggested

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by it.

8.419 The Committee desired that the Ministry submit a note with reasons on the recommendations/suggestions made by the Committee, which could not be incorporated in the Bill.

(l) 183rd Report Norms for Opening of Kendriya Vidyalayas 8.420 The Committee appreciated that in view of the ever-increasing shortage of land in the present scenario, lowering the land requirement was the need of the hour. However, the Committee liked to emphasize that there should be no deviation from the need to demarcate 40% as building area and 60% as play field of the 4.00 acres provided in a metropolitan city. 8.421 The Committee hoped that with the revision of land norms, situation would improve. The Committee desired that the Department of Secondary and Higher Education and KVS vigorously pursued the allotment of land with the concerned agencies and reported the progress made in this regard to the Committee within three months. 8.422 The Committee took a serious view of this development because the prescribed pre-sanction procedure for the purpose were simply given a go by in these cases. The Committee was perturbed to note that these 95 KVs were opened without taking any prior approval/sanction. Even the ex-post-facto approval could not be taken. The Committee was not happy with such an approach of short circuiting the established procedures. In this case, in the absence of any formal approval and there being no fund allocation specifically for these KVs., plan funds were utilized to fulfill the salary and other requirement of staff members, of these KVs. This was not a healthy fiscal practice.

8.423 The Committee was of the view that the role of the Government should be to ensure that prescribed norms for opening of new KVs were strictly adhered to. Instead of giving priority to such districts where KVs were genuinely required and where there were no KVs, setting up such schools arbitrarily was certainly deplorable. 8.424 As per the information made available to the Committee, out of such 95 KVs, 13 KVs were yet to be functional. The Committee found that the status of remaining 82 KVs could not be considered as fully functional. The Committee failed to understand the basis of there being surplus teachers and their adjustment in these 95 KVs. Details given by the Department indicated that out of 36 sanctioned posts of PGT, only 29 were in position; and there were 55 vacancies in the sanctioned posts of TGT. What was more disturbing was that, only 5 KVs had PGTs. On a specific query in this regard, the Committee was informed that rationale of surplus teachers was based on sanctioned posts. However, in view of the fact that number of posts filled up being less than the sanctioned posts, the Committee found this justification untenable. The Committee viewed it with serious concern and deplored such adhocism. 8.425 Details about schools made available to the Committee clearly indicated that enrolment status in some of the Vidyalayas was far from satisfactory. The Committee liked to emphasize that the Department ought to have been more concerned about the present status of these schools; availability of required teachers and infrastructure; and also about the number of students enrolled. It recommended that the remedial steps be taken urgently to remove all the shortcomings. The Committee emphasized the need to review these cases expeditiously. In some cases even there was no land allotted to the school; how the construction work would start. The Committee hoped that the Department must be making efforts on their own in this regard. The Committee desired that the Department took up the matter at the highest level to sort out the problem and submited a report to it within three months. Project Vidyalayas 8.426 The Committee reiterated that the Department/and KVS, besides approaching the project authorities for re-opening of closed vidyalayas. Those Project Vidyalayas which could not be revived may be taken over by the Government and run as normal KVs. 8.427 The Committee understood that the Ministry was pursuing with the concerned agencies for payment of dues/pending against them. However, these efforts seemed to have failed, as only three PSUs had responded and these too have expressed their inability in liquidating their dues. The Committee found the situation quite discouraging. The Committee was of the view that this matter needed to be taken up at the highest level. There was also a need for evolving a mechanism for release of funds by project authorities in advance on yearly/half yearly basis. Only then, this problem was likely to be solved, otherwise, this financial burden on KV Sangathan could continue to persist or might even increase.

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Kendriya Vidyalaya Buildings

8.428 The Committee was concerned about the position in this regard in the NE Region and felt that special efforts should be made to complete all the projects in a fixed time period.

8.429 In such a situation the Committee was constrained to conclude that the construction status of these KVs would continue to remain at the same stage. It appeared that no agency was responsible and KV Sangathan itself seemed to have abdicated its responsibility/duty. 8.430 The Committee, however, felt that this monitoring mechanism had not proved to be very effective so far. The Committee observed that an initiative has been taken to simplify procedural formalities. Henceforth, all sanction orders issued by KVS were to be forwarded to the concerned CPWD authorities by name. This would result in eliminating undue delay occurring at various levels in KVS as well as in CPWD.

8.431 Another problem noticed by the Committee was lack of co-ordination between the civil and electrical wings of CPWD. This also, the Committee found, led to unnecessary delays in this regard. The Committee was happy to note that CPWD had since introduced a composite tendering system, whereunder electrical works inside the building were to be made part of the main contract. 8.432 Committee’s attention was also drawn towards another problem being faced by CPWD with regard to time taken in handing over of works by CPWD to KV authorities, which varied from state to state. The Committee was of the view that there was an urgent need for a complete review of existing procedure at every stage---pre-construction, construction and post- construction of KV buildings. Although some initiative has been taken by KVS and CPWD, the Committee felt that this would not serve the purpose. The Committee, therefore, emphasized that all unnecessary procedural formalities need to be done away with urgently. A regular and effective monitoring mechanism involving all the concerned authorities, the Committee felt needed to be put in place urgently. The Committee liked to impress upon KV Sangathan, CPWD and other construction agencies to complete all the pending construction works in a pre-approved fixed schedule so that there was no further cost escalation as also there was no inconvenience caused to the students and teachers.

Admission Criteria for Students

8.433 One of the main recommendations of the Mahajan Committee, the Committee was informed that freezing of sections was neither academically sound nor administratively feasible. The Committee was also of the view that problem of increasing number of students could not be solved by the freezing of sections.

8.434 The Committee, however, found that as per the latest response received from the Department, the recommendations of the Baldev Mahajan Committee had since been rejected in principle. The Committee failed to comprehend the reasons for the change in the stand of the Government. The Committee liked to point out that number of students in a class/section being more than the prescribed ratio, did affect the quality of education adversely; it needed to be avoided. The Committee was also in favour of more and more students getting admitted to the KVs. But overcrowding was certainly not conducive for focused attention on students performance. KVs could not be an exception to this. The Committee, therefore, felt that all efforts need to be made to avoid overcrowding in KVs by opening additional sections with all the infrastructure wherever needed.

Vacancy Position

8.435 The Committee noted with serious concern that the process of selection of teachers that had started in February 2003, could not be completed till the time of the writing of this Report. The Committee was at a loss to see that 1571 posts of teachers continued to remain vacant for several years. The Committee, while appreciating the move for giving the ad hoc appointment to the selected teachers pending the inquiry, demanded strict action against those found responsible for this fiasco. The Committee called upon the government to consider the recommendations of the Satyam Committee for an early implementation so that future of those teachers was decided without further delay. The Committee was also aware that on an average about 7.5% ad hoc teachers have contractual appointment. The Committee liked to point out that teachers appointed for a short period would had no motivation to give good results, for obvious reasons. The Committee, therefore, recommended that ad-hoc appointment should be to the barest minimum and the vacancies must be filled as soon as possible. The Committee also had serious reservations about the prolonged recruitment procedure that goes on for years. There was an urgent need for having a review of the same for streamlining, decentralising and eliminating the unnecessary procedural formalities.

8.436 The Committee was of the firm view that centralized recruitment system was one of the main reasons for continuance of vacancies for long time affecting the academic environment of the Vidyalayas. The Committee therefore, reiterated its recommendations of decentralization of the recruitment process for selection of candidates at zonal level so that

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it became convenient to people of different regions to participate in the process which otherwise might not be possible for them. It would also ensure proper representation of the candidates from different parts of the country, particularly from NE States and J&K.

Grievances Redressal

8.437 While appreciating the initiative taken by KV Sangathan, the Committee liked to point out that there should also be a mechanism whereby a track of efficacy of such an outlet available to employees could be constantly monitored. The Committee felt that the ground reality in this regard seem to be somewhat different. Even public representatives such as MPs sometimes, failed to contact the concerned officers because most of the time they were not available. Details regarding number of Grievances received and those dealt with also did not indicate a significant improvement.

8.438 The Committee had learnt that teachers union in KVS had been derecognized. The Committee liked to have a brief note on the issue for its consideration.

Survey of KVs

8.439 The Committee was of the firm view that this was the right time for making a comprehensive assessment of KVs spread over different parts of the country. Reason behind making such a suggestion was that Kendriya Vidyalayas having evolved into a reputed educational system since its inception in 1960s, had seen many ups and downs. Inspite of the best efforts put forth by all concerned, quite a few constraints continued to persist at the ground level. Committee’s specific recommendation for conducting a detailed survey was meant to take corrective measures based on its foundings so that KV Sangathan was better equipped in attaining its goals. Committee’s recommendations/observations on the various aspects of functioning of KVS were also meant for this purpose only.

8.440 The Committee was unhappy to note that the spirit of Committee’s suggestions had not been given the importance that they deserved by the Department/KV Sangathan. The Committee was afraid that development of an Information Booklet and periodical submission of duly filled-up Proforma by KVs would remain a routine exercise. The Committee desired again reiterated its recommendation for conducting a nation-wide survey of KVs and the information generated there from for improving the functioning of KV Sangathan.

(m) 184th Report Norms for Opening of Navodaya Vidyalayas 8.441 The Committee was concerned about the oft-repeated excuse given by the Department regarding the non-functional JNVs i.e. non-availability of temporary accommodation that was to be provided by the State Governments. The Committee was perturbed over the non-challant attitude of the Government in making the JNVs functional. The Committee strongly felt that this being a Central scheme, the JNV Samiti and the Department of Secondary and Higher Education must try to see that a sanctioned JNV became functional as soon as possible and it must not be left to the States and wait till they took a decision. It was a scheme for the benefit of their students. States, therefore, must be persuaded/advised and facilitated to arrange an accommodation. 8.442 The Committee was of the opinion that the Department in the first place should explore all possibilities to ensure that the suitable temporary accommodations were arranged by the State Government well before the JNVs were sanctioned. Normally, sanctioning of JNVs should be made after a suitable accommodation, temporary or permanent, had been made.

8.443 The Committee found that the problem of non-functioning of a JNV was endemic in North-East. Despite best efforts made by the Department to make them functional, it left lot to be desired. The Committee felt that more sincere and concerted efforts were needed to make the JNVs functional as soon as possible. Looking at peculiar topography of this region, special effort and norms must also be considered so that the schools started functioning without wasting much time.

8.444 The Committee desired that the Department ensured that the districts not covered under the scheme were covered by the end of the Tenth Plan. As regards Tamil Nadu not adopting the scheme, the Committee desired that this matter may be taken up again with the State Government and place the outcome before the Committee for its information within three months.

8.445 The Committee hoped that the Department and the JNV Samiti were alive to this fact. The Committee noted the procedural delay in the communication about sanctioning of the Vidyalayas taking in some cases several months. The Committee found it completely unacceptable. It, therefore, recommended that henceforth the communication regarding

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sanctions should be sent to all relevant offices immediately at various levels, so that the process of preparing plans, drawings, etc. could be commenced instantly.

8.446 The Committee felt that though the system of composite tendering system was a welcome development, it would still not rule out completely the possibility of delays due to other reasons. The Committee felt that in order to see that civil works were not unduly delayed, this activity including the clearances, etc. from different agencies involved should be completed in a fixed time schedule. The Committee felt that help of local MPs and other representatives of the people could be sought for expediting such clearances particularly from State governments and their agencies.

8.447 The Committee was also of the considered opinion that the tender documents must provide for heavy penalty on the contractors if they failed to stick to the stipulated time frame fixed for this purpose.

8.448 The Committee was informed that sometimes the contractors abandoned the construction due to unforeseen developments such as price escalation of iron, cement etc. The Committee was of the view that such cases might be fewer and far between. The Committee desired that the JNV Samiti and CPWD devised some model and calculate the expected price rise and time-frame to complete the building projects. The construction work should be entrusted to those contractors who were dependable and had the capability to finish the work.

8.449 The Committee was aware that several formalities were to be completed before completion/finalization of tender and awarding job to contractors was also a long process. Yet, the Committee was of the view that it was possible to reduce time in all these to a large extent. The Committee, therefore, strongly recommended that the entire process from sanctioning the project and awarding the job to the construction agencies should be streamlined so as to obviate possibility of any delay. Further, on-line tendering might be tried to cut the delays drastically. There was also need to bring in transparency in the entire procedure.

8.450 The Committee was of the considered opinion that the Construction Coordination Committee should meet more often, but not less than once in two months. This, the Committee felt, would keep the monitoring officials more attentive and alert because they would have to report every two months about the progress in construction. Strict view must be taken in the cases of undue and unreasonable delays.

8.451 The Committee was of the view that such areas needed more quick attention in regard to schools, etc. than rest of the regions of the country and must be ensured that the law and order aspect might not be taken as an excuse for delays in construction. The Committee was of the opinion that the Department should exercise more caution in choosing the construction agencies for difficult regions. Engaging local agencies for the construction work might also be considered. All out efforts be made with the help of State Governments to ensure that the construction work was completed well within time. And if it was unduly delayed, responsibility must be fixed to check any possible carelessness in this regard.

8.452 The Committee also noted that the land allotted to JNV in Kargil was partially taken over by Defence and it appeared that the Department did not take up the issue with the Ministry of Defence for a long time. Now that new site had been identified, the Department must endeavour to complete the required formalities and consultation with district and Defence authorities as soon as possible so that construction work could begin at early date.

8.453 The Department while explaining the status of construction activities in J&K and North-East, had merely informed the Committee that the work was in progress in these regions. The ‘work in progress’ as such did not give a correct status of work. The Department must in future give the Committee specific stages of the construction so as to enable it to get a definite view in the matter. 8.454 The Committee found that the Department was silent about the efforts made by it for taking up the fund requirements with the Ministry of Finance. The Committee, therefore, reiterated its earlier recommendations suggesting the Department to take up the issue of funds with the Ministry of Finance at the earliest to expedite the construction works. At the same time, the Committee would expect NV Samiti to bring in such structural and functional changes in it as to impart efficiency and better work-culture.

8.455 The Committee felt that suitable flexibility needed to be brought in the requirement of land for opening JNVs in urban, semi-urban and hilly areas. The Committee, therefore, recommended that the State and District administration should be sensitized for selecting sites that were suitable, easily accessible and free from encumbrances. After all, the children of that State or district were going to be the beneficiaries of these schools. The Committee at the same time also opined that the reduced land area should not be a constraint for game and sports activities.

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Infrastructure

8.456 The Committee found this situation very disturbing. The Committee was of considered opinion that the sports help in improving physical and psychological strength of the children and further contribute in development of overall personality of the child. It was a means of recreation as well. Absence of playfields, therefore, put them at disadvantage in these regards. The Committee strongly emphasized the need for making play-field mandatory and where it was not possible due to small area available, alternate arrangements be made with neighbouring bodies, agencies, clubs, etc. for allowing students to make use of their facilities.

8.457 The Committee was of the view that the need for special maintenance grants arose either because of poor construction quality or extremely lackadaisical attitude of those looking after the maintenance work. It spoke of near absence of monitoring mechanism for this purpose in the Navodaya Vidyalaya Samiti. The performance of construction wing headed by a General Manager, it appeared, was not able to deliver the good. The Committee found it difficult to believe that the Executive Engineers at the Regional Offices were regularly inspecting the Navodaya Vidyalayas to see that the buildings, etc. were properly maintained whereas it was mandatory for them to inspect at least four Navodaya Vidyalayas buildings of the region each month. The Committee deplored that the concerned authorities were not performing their assigned duty diligently by making regular inspection of these activities in each Vidyalaya that should be monitored regularly by the NV Samiti every two months.

Funding

8.458 The Committee felt that though the fund allocation was not upto the expectations of the Samiti, it was still sufficient enough to allow the NV Samiti carry out its activities smoothly provided it observed proper fiscal discipline.

8.459 The Committee was concerned to note that NV Samiti in several cases had failed in completing its targets well within time due to lack of proper planning and effective monitoring. The time and cost-over-run of projects ultimately increased the final cost substantially. The Committee while comparing the achievements of Kendriya Vidyalayas and Jawahar Navodaya Vidyalayas found that Kendriya Vidyalayas had been more successful in delivering better results with lesser budget. Looked from cost-benefit point, KVs, no doubt, had much more wide coverage with quality education comparable to many good public schools in the country. The performance, management and amount of funds spent for JNVs every year, raise a valid question-mark about this scheme. The principle behind it might be noble and highly desirable, its performance so far, however, had not been what was desired. The Committee liked to have the response of the Department in this regard.

8.460 At the same time, the Committee was of the view that the Department might in the meantime take up the matter strongly with the Planning Commission for enhanced Tenth Plan outlay to complete the requirements of the JNVs.

Criteria for Admission in Navodaya Vidyalayas

8.461 The Committee was of the considered view that the condition of studying and passing class III, IV and V in preceding three continuous sessions needed to be reviewed. The student aspiring for admission in a particular JNV should be asked to produce a certificate of domicile of that particular district. This would be the most reasonable way to check the influx of otherwise ineligible candidates. 8.462 The Committee desired the Department to reconsider the concept of formal education and see that its aim to provide quality education to meritorious poor rural students did not get defeated in the cobweb of guidelines which seemed to be a little away from the ground reality prevailing in rural areas. The Committee strongly felt that a candidate coming out of these informal centres or unrecognized school of the village be allowed to take the selection test once he or she had passed Class V. 8.463 The Committee was of the opinion that such requirement deprived poor and deserving students from appearing in the Selection Test. To this, the Committee was informed that a group of officers was examining this aspect. The Committee desired that the Department took suitable measures to ensure that poor, meritorious students of rural areas were able to make into the JNVs. The Committee hoped that the Department would suitably amend the eligibility conditions for Selection Test.

8.464 The Committee also desired that prominent heads of village panchayats and the president of the Zilla Parishad be included as ex-officio members in the Vidyalaya Management Committees to ensure that interests of the poor local people of rural areas were protected.

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Hostel Facility

8.465 The Committee failed to understand whether action if any was contemplated by the NVS/Department. The Committee liked to reiterate that entrusting the job of supervision of hostels to teachers could be considered only a stop-gap arrangement. Matrons specifically entrusted with the supervision of hostel facilities to the enrolled students need to be there. The Committee strongly felt that a review of status of manpower available for the hostels of Navodaya Vidyalayas was required to be made on an urgent basis and make the hostels functional in the real sense by providing the required staff.

8.466 Committee was of the firm view that security aspect needed to be given priority specially in view of location of Navodaya Vidyalayas. Boundary walls and lighting arrangements being the minimum requirements needed to be provided to each and every Navodaya Vidyalaya. It would be appropriate if initiative were taken by the NVS for strengthening the same. The Committee desired to have a status note in this regard.

8.467 The Committee, accordingly, recommended that an assessment of existing health facilities for Navodaya Vidyalayas may be made and action for strengthening the same may be taken.

Pensionary Benefits to NVS Employees

8.468 The Committee reiterated its recommendation made in its 154th Report for provision of pensionary benefits to the NVS employees on the same level as being were given to the KVS employees. The Committee strongly felt that NVS employees needed to be governed by similar service conditions including pensionary benefits as applicable to KVS employees.

8.469 The Committee to emphasized that the Department should approach the Ministry of Finance once again in this regard.

Problem of Drop-Out

8.470 The Committee did not agree to this notion of adaptability of students before Class IX. It felt that the identity of the JNVs should be made special in the sense that any child who joined the Vidyalaya at any stage must feel at home rather than experiencing problem of adaptability. Adaptability for a newcomer was a natural problem. But the Samiti needed to devise such teaching methods where the newcomer got mentally and psychological settled and felt at home at the earliest.

8.471 Another problem against lateral entry before Class IX as explained by the Department before the Committee was that holding an entrance test for every class every year was not a viable proposition. The Committee was of the opinion that the lateral entry must be allowed to fill up vacancies, if any, in all the classes and not merely in IX and XI classes to ensure that no seat were allowed to go vacant. It was a waste of the available resources. The Committee was not inclined to agree with the argument of the Department that the number of vacancies being small, it would not be viable to hold an entrance system for every class every year. The practice of entrance test was in vogue in all schemes of school including private/public school. If entrance test could be held every year for VI, IX and XI classes other classes also could be clubbed with them. Furthermore, the Committee wished to reiterate its recommendation about admitting girl students of the area in the vacant seats. The Committee desired that no seat be allowed to go vacant when lot of our children remain out of school.

Survey of JNVs

8.472 Problem areas in all the aspects of running of Navodaya Vidyalayas, be its infrastructure, staff strength, their service conditions, hostel facilities, liasioning with the State authorities, funding etc. had been noticed by the Committee. The Committee was of the firm view that a one time exercise of assessment of an education system functioning for more than two decades was bound to identity specific problem areas on an All India basis for which remedial measures could be easily initiated.

(n) 185th Report 8.473 After every debacle in international sports, there starts a blame game amongst various agencies responsible for promoting sports and then forgetting everything afterwards. Such a poor performance by a country of more than 100 million people should be a matter of debate and close introspection for not only the sports administrators, policy-makers, Sports Federations, sportspersons but also amongst the people at large. There was a need to sensitize everyone in this respect.

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Previous Studies & Reports 8.474 The Committee would like to especially mention its 34th and 77th Reports on the subject presented to both Houses of Parliament in the years 1995 and 1998 respectively. Most of the problems and issues identified by this Committee in these Reports still remain the same; and very few of its recommendations had actually been implemented. The Committee believed that it was probably the general inertia and resistance inherent within the system against any attempt to bring about change of any kind. The Committee deprecated this tendency, particularly in a system that was concerned with promoting sports and games. It emphasized the need for bringing about reforms in sports management and governance urgently to make it more dynamic, responsive, responsible and result-oriented.

Problems and Issues Hampering Sports Lack of Sports Culture Generating Sports Consciousness 8.475 For this, the Committee felt, that all out effort would have to be made by everyone of us at every level in every walk of life; government alone would not be able to do this. A national campaign for generating consciousness about sports would have to be launched. NGOs and local elected bodies, the Committee believed, could play an effective role in this regard. Such a campaign might start, of course, with Government patronage at the grassroot level, say from Aanganwadi Centres, primary schools, local clubs, Mahila Mandals of NYKS, Resident Welfare Associations, Gram Panchayats, Municipal Bodies, etc. Integrating Sports with Educational Curriculum 8.476 The Committee felt, that unless sports became a premier category in job market - government and private, parents/students would not be attracted to it at all. Industry and private corporations alongwith the Government would have to give adequate weightage to sports and physical education, while making recruitments for them. Sportspersons are known to have been successful managers/employees due to obvious reasons. 8.477 Participation in games and sports fosters qualities like sportsmanship, fairness, team spirit, etc. in the children that makes them ideal citizens. The Committee found that integrating sports with education was an old demand; even this Committee itself had underlined this point in its 34th report submitted in the year 1995. The Committee was of the view that this needed to be done urgently. The Committee strongly recommended that immediate efforts be made with the help of Department of Secondary and Higher Education, CBSE, State Boards of Education and the Ministry of Youth Affairs and Sports. If the need be, the matter could be put before the CABE also. 8.478 The Committee felt that sports and games should be made compulsory from the primary school. The watchwords, in fact, should be “Catch them young and take sports to the grassroot level”. The Committee was of the view that by making physical education an integral part of the educational curriculum, broad-basing of sports would be done automatically. A physical fitness programme should be drawn and implemented in the schools and colleges across the country to sensitize every child/youth about the value of fitness and good health, so that they become more disciplined as well as productive human beings.

School Games Federation

8.479 The Committee was concerned to learn that the School Games Federation was not functioning due to some dispute and the matter was sub-judice. Last Long-Term Development Plan (LTDP) meeting of the Federation was held on 8.5.2003 and since then no Central assistance had been released to the Federation. The Committee wanted the Ministry of Youth Affairs & Sports to intervene in the matter to try and settle the problem out of Court so that the Federation starts working without further delay.

Higher Education and Sports

8.480 The Committee, therefore, recommended that the Government should, through UGC and Association of Indian Universities (AIU) launch a nationwide strategy for increasing sports activities in the universities. An Inter-University Sports Board or such a body should be set up in every State so as to organize/support sports activities in the universities and the colleges in a phased manner with the help and support from AIU.

8.481 The Committee noted that under the two centrally sponsored schemes of 'Grant to rural schools for purchase of sports equipment and development of play ground' and for ‘Promotion of sports in universities and colleges’, central assistance was provided. The Committee was, however, constrained to observe that benefit of these two schemes were not evenly spread in the different States. Some of the States in remote and inaccessible areas seem to have remained uncovered by these schemes

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as indicated in the funding pattern for the last three years. What was more worrisome was the decision to transfer these schemes to the State sector w.e.f. 1.4.06. States so far actively involved would stand deprived. The Committee was of the opinion that schools, colleges and universities were the ideal places for spotting and nurturing sports talent and they should continue to be so. The Committee, therefore, strongly felt that there was an urgent need for review of these two schemes and retaining their central character. Inadequate Incentives and Awards

8.482 It was shameful to find some of our former sports person who had brought laurels to the country, selling tea/chat, etc. on roadside stalls to earn their daily bread. The Committee felt that in order to promote sports in the country we needed to provide adequate incentives, good job opportunities, economic security and social recognition to our budding, as well as existing sportspersons, so that the youth — our greatest asset was attracted to sports. 8.483 Incentives and their support to our former sportspersons including pension was highly inadequate. The Committee was of the opinion that former sportspersons particularly the aged ones need to be supported in a big way for which Government must put a proper system in place at the earliest. In Academics

8.484 The Committee felt that to make up for this loss, the students who perform well in sports should be given some compensatory marks in academics. Similarly, certain percentage of seats for admission in professional and other institutions/colleges should be reserved for students who had achieved a certain level in sports.

In Government jobs

8.485 It was disheartening to note that neither the Ministry of Sports nor the Ministry of Personnel had a ready database, Ministry-wise, to show the position of sportspersons employed in this category into different Ministries/Departments. The Committee, therefore, recommended that Ministry/Department-wise position might be obtained and given to the Committee within three months for its consideration. The Committee disapproved the idea of making reservation for eminent sportspersons in only group C and D and not in A&B groups also. It was insensitive to employ eminent/international sportspersons as class three and class four employees.

Cash Awards

8.486 The Committee emphasized the need for increasing the numbers of cash awards by extending it to outstanding performance at national/international performances, even if they failed to win medals. This recognition would keep their morale and spirit high. The amount of cash awards also needs to be enhanced suitably.

In selections

8.487 The Committee’s attention was drawn towards alleged unfair selection of eminent sportspersons for Arjuna Awards/Rajiv Gandhi Khel Ratna Awards, Dronacharya awards, etc. Such allegations, the Committee felt, point directly towards lack of transparency as well as specific norms in the selection process. The Committee, therefore, recommended that the selection process for these awards be streamlined for making it more participatory, objective and fair with no scope for any interference, political or otherwise.

8.488 The Committee emphasized the need for taking adequate precaution to avoid discrimination of any type in making selection either for awards or for participating in a particular event.

8.489 It might be seen that allocation made to the Ministry in 2005-06, constituted just 0.98 per cent of the entire Budget of the Government of India. In other words, numerically it comes to Rs. 4 per person annually. The Committee considered it disappointingly low in view of the poor and inadequate facilities/infrastructure in a vast country like ours, 40 per cent of which constitute the youth. 8.490 The paucity of funds, in fact, appeared to be one of the major constraints, both at the Centre and in the States, in developing and promoting sports activities. Due to paucity of funds, our schools and colleges were not able to provide even the basic equipments and infrastructure required for sports and games. Non-availability of basic sports equipments and play fields for our young ones was also one of the major drawbacks in promoting sports in the country.

Enhancing Allocations

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8.491 The Committee understood that the overall economic crunch might make it difficult to spare enough resources for the development of sports, in view of more basic needs like water, housing, education, health etc. The Committee however felt that to achieve the objectives envisaged in the Tenth Plan approach paper and to bring Indian sports at a desirable level, a major hike in the outlay for sports was highly imperative. A multi-sectoral approach needed to be adopted for resource mobilization by tapping other sources to promote and develop sports in the country.

8.492 The Committee felt that in the prevailing situation, the responsibility for providing bulk of resources for this purpose falls mainly on the Government only. The Committee was of the view that the Government should make all-out efforts for mobilizing adequate resources for promoting sports and games in the country. The Committee also recommended that the Planning Commission and Ministry of Finance should take a more realistic view of the financial needs of the Ministry of Youth Affairs and Sports and provide them more resources. To begin with the Government should provide at least 2.0 per cent of the total Annual Budget of the Government of India for sports only.

Generating own resources

8.493 The Committee, no doubt, was aware of the general resource constraint in the country but felt that less than 1% of the total Budget allocated for sports was too meagre to expect any spectacular achievements. The Committee was informed that SAI was generating some resources of their own by way of renting out their stadia/buildings etc. The Committee felt that there were many other sources of collecting/generating revenue for the purpose, but not much has been done in this regard so far. 8.494 The governmental efforts so far made to promote sports had not yielded the desired results. The Committee found that although various agencies were involved in the promotion of sports, most of them received funds from the States. Most of the sports federations and associations did not have any resources of their own. In the long run, however, these associations/federations should also try to generate some revenue to become economically independent. That, the Committee felt, would help them exercise their autonomy and authority.

Public-Private Partnership 8.495 The Committee was of the view that the Government alone would not be able to afford the required financial resources for promoting sports. In view of this, public as well as the private sector need to supplement the governmental efforts. The Committee, therefore, emphasized the need for a joint and coordinated approach by including public and private sector, in pooling their resources to promote sports in the country. This was more so necessary in the context of the financial constraints, both at the Central and State levels. 8.496 It appeared to the Committee that the issue of private participation was dealt with purely in bureaucratic manner without addressing the concerns of the corporate houses. As a result, it did not evoke the desired response. The Committee, therefore, strongly recommended that this issue be discussed afresh with the corporate houses and a scheme be chalked out in consultation with them. The Committee was aware that many corporate houses had contributed directly or indirectly for sports and many more were willing to do it. But they did not come forward due to various reasons. A policy/scheme that had their participation, the Committee was sure, would certainly be fruitful and effective.

8.497 The Committee recommended that major industrial/corporate houses might be requested to adopt one sports discipline for promoting in a particular area including scouting and nurturing talent in that discipline. They might be encouraged to establish in-house training and R&D facilities and ensuring participation in various national and international events. The Government might consider suitable tax holidays and other exemptions to the industrial houses for investment in the sports. Prathmik Shiksha Kosh and Sports

8.498 The Committee was of the firm view that unless the sports and the physical education were integrated into educational curricula, sports could not get the required popularity amongst our children and their parents. In other words, education and sports would have to be inextricably linked. That being so, allocation particularly, for elementary education must be spent on sports and games in schools. The Committee, therefore, recommended that sports and games be included as one of the components in Sarva Siksha Abhiyan. Not only Mid-Day Meal, sports and games in school, the Committee felt, would be equally attractive for increasing enrollment in our school and also restraining them from dropping out.

8.499 Availability of modern infrastructure for sports was vital both for mass participation as well as development of excellence in sports. The Committee found that the infrastructure of international standards was not available in India even to the elite sportspersons. The Government of India had sought to provide facilities and infrastructure in various parts of the country through its different schemes, namely, centres of excellence, special area games, SAI training centres, National sports talent contest, Army Boys Sports Company, etc. But their geographical spread was highly inadequate for a huge

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country like India. Even the existing infrastructure at these places were poorly maintained and many of these required immediate replacement/upgradation. Several of these did not have synthetic track for athletics or the surface for hockey or indoor multi-purpose halls or swimming pool. The regional centres of the Sports Authority of India, which were the centres of excellence also were found to be lacking in many regards as far as infrastructure was concerned.

8.500 The Committee felt that Government should plan the development of sports in a phased manner so that scarce resources earmarked for the purpose were optimally utilized and necessary basic infrastructure was built up over a period of time. To begin with, there should be provision of a playfield in each school and colleges in rural, as well as urban areas. The Committee emphasized the need to have district level stadia and other infrastructure directly under the management of district boards. Where it was not possible to have such separate playfields in the urban areas for want of space, a group of schools/colleges could be allowed to use a common playfield at different timings. It should however be made mandatory for the builders and the housing societies to provide a playfield in every housing complex for the residents.

Lack of sports infrastructure in Rural Areas

8.501 In fact, most of our efforts to develop sports, the Committee noticed, had so far been concentrated in urban areas only, and the rural areas had remained altogether neglected. We had also not been able to provide even simple play fields in all our schools and residential locations, not to speak of more. The children in rural areas used the dry fields as playground and tree branch as hockey stick and cricket bat. We had, thus, failed to encourage the rural children/youth to ensure mass participation in sports. There was no dearth of potential in rural areas; what we required today was a concerted approach for creating at least basic facilities and providing basic sports equipments in the rural areas.

8.502 With the decentralization of powers and resources to panchayats and Nagarpalikas, Government should not find it difficult to provide sports facilities at Gram Panchayat, Block, smaller towns and District levels. Sports competitions and championships could also be held periodically at these levels. Such a broad-basing of sports facilities would automatically help in scouting talent at an early age because it was easier to train the young ones. Panchayat and Nagarpalikas should be mandated and encouraged to take up this responsibility.

8.503 As regards, infrastructure, a pyramidical approach needed to be adopted. First the base had to be enlarged. Major initiatives would have to be taken in creating playgrounds in rural and tribal areas at Block and District levels instead of building huge stadia in big cities. It was equally important that the rural population was encouraged to participate in sports and use the facilities provided to them to acquire skills of modern games and sports. We must endeavour to ensure that millions of children were not deprived of opportunity to participate in sports due to lack of infrastructure. Victors came out of participants only. We needed to convert our huge youth manpower (around 40 per cent of total population) as our greatest strength.

8.504 The Committee felt that instead of organizing the games at the State capitals, many of the games could be held in other places in the State, so that the sports infrastructure was not concentrated in one particular area. This would bring about the much-needed distribution of infrastructures all over the State. Thus, more and more people would have easy access to these infrastructures within their own State. Poor Maintenance of Infrastructure

8.505 The Committee was informed that the poor maintenance of infrastructure/stadia/sports complexes was mainly due to (i) lack of resources and (ii) multiplicity of agencies responsible for the maintenance. The Government intended to go to the Planning Commission with a request for additional funds for the maintenance of stadia/sports complexes. The Ministry of Sports had been so far placing funds at the disposal of different agencies like DDA, NDMC and CPWD for the entire maintenance work. However, given the poor maintenance of our infrastructure the Committee was not happy with level of interaction and monitoring between Ministry and other agencies on the maintenance aspect of our sports infrastructure.

8.506 The Committee felt that the amount available to SAI for maintenance of infrastructure facilities was quite small that should be enhanced substantially to meet the requirements in this regard. The Committee did not approve of shifting the blame to NDMC and CPWD for poor maintenance; it should be basically SAI’s responsibility to get work from them. If there were some problems relating to control and monitoring in the existing system, such issues could be resolved with their headquarters. The Committee strongly felt that ideal position would be a separate engineering wing for SAI. The Committee, accordingly, recommended that the Ministry should initiate action in this direction. Setting up of a separate engineering wing for SAI would result in timely completion of all maintenance work of SAI.

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Under-utilisation of infrastructure

8.507 The Committee came to know that these generally remain idle most part of the year and States found it difficult to maintain. The Committee found it ironical that on the one hand, we suffer from massive lack of infrastructure and on the other hand, our infrastructure remained un-utilized or under-utilized. This was an unfortunate situation that needed to be corrected. The Committee strongly recommended to have a plan prepared for this purpose in consultation with all the State Governments, Federations, SAI, etc. for putting our infrastructure to maximum use. Transferring infrastructure schemes to States

8.508 Sports infrastructure in our country had witnessed another development of far reaching implications i.e. .the recent decision of Planning Commission to transfer four schemes viz. (i) Grants for Creation of Sports Infrastructure (ii) Grants to Rural Schools for Purchase of Sports Equipment and Development of Playground (iii) Grants for a promotion of Sports in Universities and colleges and (iv) Grants for Installation of Synthetic Playing Surfaces to the States. The Committee had some reservations about this move. The resource crunch in the States was not a hidden fact and transfer of these infrastructure schemes would put additional burden on their already scarce finances. Committee’s apprehension was based on assessment of ground realities. One example would be enough. For our North Eastern States nurturing hidden sports talent, 34 infrastructure projects were sanctioned during the period from 2000-01 to 2004-05 with 16 projects not receiving even a single paisa of Central assistance Fate of the remaining projects was no different because of very meager release of Central funds. What was more disturbing was that the exact status of construction of all these on-going projects as on 31.1.2006 was not available in the Ministry. Reason being that State Governments could avail of Central assistance by submitting progress reports, utilization certificates etc. within two years from the date of issue of the approval. Apparently, States were having some inherent constraints in implementing these projects as per the prescribed norms. If the idea was to leave infrastructure development to the States and Centre responsible for promoting excellence, future of sports in India, the Committee felt, was going to be quite grim. States had several competing demands on their resources where sports and games did not get priority. The Committee felt that these schemes were not going to sustain without financial assistance to the States. The Government needed to devise an alternative to sustain these schemes. The Committee hoped that the Planning Commission would help out the States by enhancing the States’ annual outlay for sports to enable them to run these schemes successfully in the overall interest of the sports. The Committee was of the considered opinion that all the on-going infrastructure schemes being run by the Centre prior to its transfer to State must continue to be funded by the Centre till these were completed. This was all the more important in view of the growing demand of infrastructure for forthcoming prestigious events of Commonwealth Games 2010 and other international games that our country was planning to host.

Training of Sportspersons Need for Modern Training

8.509 The training system in the country, the Committee felt, needed to be re-oriented in keeping with our growing demand and fast changing techniques with adequate scientific back-up. All sports had become high-tech today; not depending only on stamina and strength. The new training system would have to take all such concern into notice.

8.510 The Committee was of the opinion that training formed the core of good performance. Champions could not be produced by training the sportspersons just for few months before the actual competition. Sports training was a systematic process extending over a long period of time.

Dietary Allowance

8.511 The Committee was happy to note that it had been decided to increase the dietary amount in the SAI Schemes of STC, SAG to Rs. 100 per day and Rs.150 for the inmates of the scheme of Centre for Excellence. The Committee, however, felt that in view of recent price hike of food items, even this enhanced amount would not be sufficient for world-class sportspersons.

8.512 The Committee was of the firm opinion that the Government should still consider raising dietary amount substantially so that players could get a rich and nutritious diet. The amount of diet allowance should be periodically reviewed in the light of price escalations from time to time. It, therefore, needed to be made to minimum Rs. 250/- per person/per day. The Committee would like the Government to devise a system of evaluating the nature and quality of diet required to be given to our sportspersons.

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Lack of Modern Equipments

8.513 The Committee recommended that Government should make efforts to arrange the latest technology for manufacturing the equipments indigenously. The cost of sports equipments, the Committee was told were very high which made them unaffordable. Even those equipments produced/manufactured in India become costly due to high excise duty on those items. Sports goods industry in India had been demanding for reduction of duties levied on goods produced indigenously. The Ministry of Finance, therefore, could be approached for rationalizing the excise and import duty on sports equipments so that not only quality of indigenous sports goods could be improved, their cost could also be brought down upto an affordable level.

Problems of Coaching and Coaches Shortage of Coaches

8.514 The Committee noted that about fifteen hundred coaches to cover the whole country was highly inadequate. In the absence of any recruitment for coaches since 1992, the number of coaches had further declined over years. The Committee felt that there was no dearth of coaching talent in our country. Our coaches, if given proper exposure and opportunities in terms of training, could produce better results than foreign coaches. There might have been marginal improvement in our performance after engagement of foreign coaches but there have been other areas of concerns like language problem and increase in dope cases. We needed to depute our coaches for trainings at international level. We could also improve the standard of our coaching and ensure a better-secured environment for our coaching community by providing healthy social security and better avenues of advancement. This would not only enhance the level of their coaching but also reduce our expenditure on foreign coaches to some extent. The Committee would like the government to urgently start the recruitment process for coaches in view of increased demand for the forthcoming Asian and Commonwealth Games.

8.515 This, the Committee felt, does hardly justify such a mass transfer of coaches. The Committee termed it a hasty decision taken without visualizing its repercussions. Abrupt withdrawal of coaches had created a genuine hue and cry amongst the affected ones. This had, in fact, affected both the coaches as well as sports persons. The Committee was of the opinion that the coaching community needed a better treatment. Transfers appeared to have been effected without keeping in mind the interest of the sports leave alone the genuine difficulties of the coaches. The Committee was of the considered opinion that this happened primarily because SAI did not have a definite transfer policy for coaches, hence no transparency. Even these transfers had been done after a long time and when it was done, 700 coaches were displaced suddenly in one go. The Committee recommended that SAI must put a transfer policy in place with no further delay. The SAI should also consider requests of those coaches who have genuine problems.

8.516 The Committee recommended that Government should immediately withdraw coaches from such meaningless assignments and place them in their respective areas of activities without further loss of time.

Withdrawal of SAI coaches from Districts

8.517 The Committee also felt that Sports being in the State List, States implemented their own policies and programmes for promoting sports. The policy of posting SAI coaches with the States, therefore, witnessed one or more of the problems mentioned above. The Committee noted that for these reasons, decision to withdraw coaches from District Coaching Centres in the States was taken and State Coaching Centres still had the SAI coaches. The Committee also felt that the SAI was not able to have an effective control/monitoring of its coaches at DCCs. Position which had emerged was also equally disturbing as the DCCs had now been left to the States who might not be able to support them due to financial constraint. The Committee, therefore, pleaded strongly for Centre’s support for employing good coaches by the States.

Academic courses and trainings for coaches

8.518 The NIS, Patiala alongwith regional centres at Bangalore and Kolkata runs academic courses to produce coaches of high caliber in different disciplines. The Committee was informed that such courses were available only for selected disciplines. The Committee recommended to have academic courses for all the sports disciplines recognized in Olympics and not confined to 22 odd ones only. This number needed to be gradually increased otherwise, need for foreign coaches would always be there in the left out disciplines.

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8.519 The Committee, after having seen the performance/standards of our coaches, had come to the conclusion that we have to go a long way in terms of training techniques/equipments for enabling our coaches to compete with the world’s best. The Committee emphasized the need for urgent corrective steps for improving training techniques, curriculum improvements, updating of faculty’s knowledge, etc. at our academic centres.

Working condition, etc. of coaches

8.520 Performance of our coaches, the Committee felt, depends upon many factors like their training, working conditions, promotions, postings, etc. The Committee found the coaches – academic as well as field, as a de-motivated cadre having meager salary, no promotions, no respectable living conditions, insufficient exposure to international and modern training facilities, lack of refresher courses at regular intervals, etc. They appeared to be the most neglected lot in the entire SAI hierarchy. In such a situation, expecting good performance from the coaches was certainly a far cry. The Committee, therefore, emphasized the need for improving service and other conditions in which the coaches functioned so that they were able to give their best to their disciplines. They might be given assured career progression after some years of experience with respectable designations. The SAI HQ should have an efficient grievance redressal mechanism to take care of their problems within a minimum possible time. There was also a need to put performance monitoring system for them at the regional centres, filling the vacancies in time and giving them social recognition at respective levels. Contract Coaches

8.521 For coaches on contract basis, a definite policy had to be evolved to take care of their problems and concerns. Further extension to contract coaches should be linked with their performance/output.

Spotting and Nurturing Talents

8.522 Apart from creating sports culture and consciousness about sports and motivating parents/students to take up sports, there was also a need to develop minimum playing facilities in every locality and schools as had been done by the countries like China, Korea, Taiwan, etc. The genetically gifted children could be identified from each locality and schools for providing scientific training and other support to develop their motor qualities and sporting skills. Sports schools might also be set up either in government or non-government sector or jointly with a view to scouting young talents in different games and sports prevalent in a particular area and then nurturing them by admitting them in these sports schools. On the basis of the performance at sports schools, students showing good potential could be admitted and further groomed in SAI training centres by providing them good nutritious food, scientific training techniques and equipments, etc.

8.523 The Committee, however, felt that these schemes had not have the desired impact. Despite some increase in the number of trainees and in the number of SAI sports centres, orientation and implementation of these schemes needed a fresh look.

8.524 The Committee found that the schemes, particularly those to scout talent at junior/sub-junior level and preparing them for future excellence (such as NSTC, STC, SAG etc.) suffered from the following problems: some disciplines having small number of trainees spread over a number of centres in the country, hardly providing for full team; representation of girls highly inadequate; centres not evenly spread in different States/regions and not in the areas having good potential; method of selection of trainees having scope for subjectivity; not all able to participate in selection; no adequate publicity; lack of periodic review of the trainees’ performance; absence of a scientific training linked with age, strength, stamina, etc.; lack of requisite/modern facilities and equipments, physical fitness centres and good living places at most of the centres; coaches not having requisite exposure for improving training techniques; no adequate sports science back-up at the centres; lack of progressive and efficient administrative policy as well as personnel at the centres; and last but not least, excessive centralization of powers - financial and administrative, either with SAI HQ or with the Ministry.

8.525 As regards the ABSC scheme, the Committee found that it could not achieve a good success ratio towards the excellence in sports. The Committee felt that if each of the ABSC centres were to confine to one specific sports discipline, with specialized facilities and inputs supported by a selection based on the specific physical and other standards, far more better results could be expected. The Committee, therefore, emphasized the need for having an evaluation of this scheme done by a competent agency/persons (s) with a view to deciding the future of this scheme.

8.526 As regards the NSTC scheme, the Committee noticed that the trainees were thinly spread over without much of attention to the limited sports trainees in a particular discipline. The Committee found this scheme also to be of marginal utility in building up excellence of high order; it was oriented more towards general sports promotion or distinguishing oneself at a local level. A few exceptions could hardly be generalized. The Committee felt that this scheme also needs a

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revisit for making it more effective.

8.527 The Committee further noted that the distribution of these schemes was not even in different parts of the country and as such their coverage remained, more or less, inadequate. Besides, near absence of an effective monitoring mechanism was conspicuous by its absence. The Committee felt that probably our administration machinery had not shown/taken required interest/efforts in implementing these schemes with required seriousness. We, it appeared, have continued with our schemes without their proper assessment and evaluation. Monitoring aspect also needed to be strengthened.

8.528 The Committee had reached to the conclusion that the purpose of nurturing and scouting sports talents in the country through these schemes had remained elusive as they failed to make any significant impact as was initially visualized when these schemes were framed. The Committee, therefore, strongly reiterated its earlier recommendation underlining the need for proper evaluation of these schemes, preferably through an independent professional agency, with a view to find out the lacunae and suggest measures for strengthening and expanding them to more and more areas of the country so as to bring out our talented children and youth to the forefront.

Lack of adequate funds

8.529 The Committee noted that the search of talent had actually not taken up under this Scheme; it provided assistance to promising sportspersons for participation in tournaments abroad, purchase of equipments, etc. The Committee, thus, found the name of the Scheme confusing. It, however, emphasized that the actual spotting of talents be made a component of this Scheme followed by adequate enhancement of allocation for it.

Role of Federations/Associations Lack of Coordination, Monitoring, etc.

8.530 The Committee realized that there was an apparent lack of effective coordination amongst these bodies/agencies. In the absence of such a mechanism, efforts and resources did not have a focused impact. This also led to wastage of time and resources with no optimum results. Besides, it became difficult to ensure and fix responsibility in such a situation. As a result, one body blamed the other for the poor performance. The Committee also noted that even IOA was not in a position to maintain any effective control and effect any coordination with national sports federations/associations. The Committee would like the IOA and the Ministry to emphasize upon the federations to frame their scientific Long Term Development Plan as envisaged in the National Sports Policy 2001 and also ensure its effective implementation. The Committee underlined the urgent need of fixing accountability for each sports agency. This could be enforced through enacting a suitable guideline or legislation in the overall interest of sports in the country. It must be ensured that all sports agencies perform their mandate in a more systematic manner with greater sense of accountability and transparency. This would indeed infuse the much needed professionalism in their working and make their attitude result-oriented.

8.531 On a specific query made by the Committee, the Ministry had categorically mentioned that during the last three years no substantiated complaint about misutilisation of funds against any NSF had been received by it. The Committee would however like to draw the attention of the Ministry to two Unstarred Questions Nos. 3274 and 1173 answered in the Rajya Sabha on 25.8.2005 and 2.3.2006 respectively, whereby Members had been informed about there being some complaints about mis-appropriation of Govt. grants by NSFs. The Committee would like to have full details in this regard. The Committee had been given to understand that accounts of NSFs getting assistance exceeding Rs. One crore in a year were audited through CAG. The Committee would like to have an idea about whether against the NSFs falling under this category, any adverse remarks were made by CAG in the audit reports and follow-up action taken during the last three years.

8.532 Details given to the Committee clearly indicated that IOA had not even paid a single paise to SAI. The Committee failed to understand the reasons behind such an unhealthy and undesirable state of affairs. Committee’s specific query about derecognition /appropriate action against the erring NSFs /Associations did evoke no response from the Ministry. What was more surprising was that these bodies continued to get Government. funds year after year. The Committee took a serious view of this and emphasized that all conceivable steps need to be taken by the Ministry immediately.

8.533 The Committee felt that Federations being the most vital link in the entire chain need to assume leadership role and wide range of responsibilities. The national federations must play a major role not only in identifying and nurturing the sportspersons, but also in providing adequate training and competitive exposure to them.

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8.534 Nevertheless, the need for a broader vision, greater transparency, professionalism, as well as accountability in their working could hardly be denied. It was good that the government did and it must respect their autonomy, but it must also ensure that they follow necessary guidelines regarding preparation of Long Term Development Plan (LTDP), annual calendar of events, submitting Utilization Certificates and accounts, etc. The Committee had been given to understand that performance of Sports Federations was reviewed during LTDP/review meetings by the Ministry. Observers had also been appointed for various sports disciplines who were to attend selection proceedings and send report to the Govt. Thus, it was very clear that Ministry had a role to play in the functioning of Sports Federations. It was basically for the federations and associations to see that negative perception about them was erased. Associating eminent sportspersons in their major activities could help improve their functioning.

Last Minute Selection

8.535 The Committee deprecated the system of last minute selection and urged upon the Government and the Federations to seriously devise appropriate mechanism to select teams sufficiently in advance to ensure that the players were able to concentrate on their events. Instead of concentrating on their training, they had to waste their precious time and energies in getting visa and other clearances, etc. Timely selection would also help in sending them sufficiently in advance to the place of events for acclimatization, etc. Federations should arrange necessary support system for arranging the administrative clearances, timely release of foreign exchange, visas, etc. Prioritisation of disciplines for Olympics

8.536 The Committee, therefore, recommended that our participation in international events, particularly in Olympics, should be restricted to those disciplines in which we had competence of international level to bag medals. It would be better not to participate than participating and losing in all the games. Our players should, therefore, be given enough training and exposure in the identified disciplines to meet the international level. It should not mean that we stop playing other games; we, in fact, should continue to play other games in the country and invite foreign teams to India to participate in competitions for providing much needed exposure to our players. When a discipline achieved a certain standard, we might put that in the Olympic category.

Sports Authority of India

8.537 The Committee was informed that the DG, Sports Authority of India was authorized to sanction projects upto Rs 50 lakhs and works above Rs 3 lakh were done by CPWD, which require the concurrence of the central government through DG, SAI. The Regional Directors were entitled to approve projects costing below Rs 3 lakh. However during its visit, the Committee gathered that a number of projects from Regional Centers were pending for approval either at SAI level or at the Ministry level. Regional Centers had hardly any financial power; even for petty amounts they needed the approval of SAI Headquarters. Even in administrative matters, the problem remained the same. The system of delegated authority appeared to be missing, causing thereby inordinate delays in decision- making.

8.538 Officers belonging to All India services come to the SAI mainly as DG and Secretary for short tenure. They being not necessarily from sports background take some time to get conversant with the problems of sports and sportspersons. Before they did so, they either go back or take up some other assignments. As a result, they were hardly in a position to make any worthwhile and effective contribution. Major problems, therefore, remained unattended due to frequent changes of key officials at decision-making level. The Committee recommended that in the present system of taking All India Service officers as DG and Secretary in Sports Authority of India, there was need for inducing some element of continuity in administrative, financial and other matters. For this, a post of Addl. DG must be provided with distinct powers and authority in all matters, which should be an ex-cadre post to be filled by the existing EDs. Such a system would ensure that Addl. DG would be sportsperson from within, not liable to transfer.

8.539 The Committee noted that the SAI’s Executive Directors were burdened because there were only two posts. As a result, they had to look after several major disciplines. In such a scenario, the important works remained unattended, which adversely affected the promotional aspects of sports. The Committee, therefore, recommended to increase the posts of EDs in SAI to have a judicious distribution of work.

8.540 The Committee opined that present management and administration was too complicated to effect changes tuned to the requirements of our sports. The old and traditional methods of administration in a bureaucratic atmosphere had done more harm than good to our sports. It was high time to bring professionalism in our approach and induct qualified and experienced sports administrators/managers for managing operations of our sports schemes and infrastructure throughout the country. Our administrators had to be scientific, value based, progressive and receptive to the changes. There was no dearth of such professionals in our country. We need to decentralize our decision making

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process.

8.541 The Committee endorsed the view of a former DG, SAI suggesting at least three years tenure for the Secretary of Sports Ministry who could involve himself in the whole gamut of sports administration and feel free to take business like decisions.

8.542 The Committee recommended that there could be a group of eminent sports persons including SAI officials for final selection of teams and in the monitoring of their performance. The Committee also underlined the need for assigning of discipline wise responsibilities to the sports managers in SAI for ensuring a better coordination with Federations. This flexible approach in administration would help in overhauling the sports setup across the country. It was equally important to empower the regional centers of SAI by decentralizing the decision making process.

8.543 The Committee observed that the term of the General Body of SAI was for three years and the last tenure of the General Body had expired on 20.3.04. Last information received by the Committee was that the reconstitution of General Body of SAI was in process. The Committee was not happy with this State of affairs. Reasons for undue delay in the reconstitution of such an important body which must have been anticipated well in advance were not known to the Committee. The Committee liked to be apprised about the latest position in this matter. The Committee was also of the opinion that a review of existing procedure for constitution of General Body of SAI might be undertaken and corrective steps initiated.

8.544 The Committee hoped that with the appointment of statutory auditors and adherence to the prescribed accounting procedure, such deviations would not occur in future.

Women’s Participation

8.545 The scheme, the Committee felt, deserved wider publicity through radio, Doordarshan and print media, in order to achieve the objectives of broad-basing the sports and encouraging mass participation by women. There was a need to give good incentives in the form of cash awards and medals so as to attract mass participation by women.

8.546 The Committee noted that during 2003-04, the percentage of female participation, in all the four SAI schemes such as NSTC, SAG, STC & COX was 29.47% which during 2004-05 slightly improved in comparison to last year. The women participation in All India Rural Sports Tournament and North East Sports Festival during 2003-04 was 36.94% and 37.89% respectively. The Committee opined that at present women participation in these schemes was quite low and needs to be enhanced to the optimum.

8.547 The Committee learnt that the Girls were not getting time to use play field particularly in certain States. As a result, they were not able to play/practice. The Committee felt that such an attitude towards our women sportsperson was deplorable. It, therefore recommended that efforts be made to ensure that they also get equal opportunity to use the existing infrastructure at all the places.

8.548 Many parents liked to send their daughters to play games but they were hesitant to do so because of security and safety reasons. The Committee noticed that out of 18 sports hostels of SAI, there was only one sports hostel for women and there was no exclusive SPDA hostel for girls. Therefore, the Committee felt that, there was a need for proper planning to develop sports amongst women, by opening more sports hostels for them and adopting more girls’ sports schools.

8.549 In our male dominated system, women’s participation in sports got neglected. The Committee felt that Sports Associations/Federations must have a separate group/unit exclusively for the women and by the women. Similarly, women coaches were also in state of neglect. We must have more qualified women coaches from amongst ex-sportswomen.

Development of Sports Sciences

8.550 The Committee found that the scientific back-up to the development of sports at most of the places was in a rudimentary stage and at others, it was virtually non-existent. Sports psychology also was not very much in vogue. Sports psychology and sports sciences, in fact, were indispensable for improving/testing physical as well as mental capabilities of the sportspersons. In the present era of stiff competitions, sports had turned into more of a psychological war. Today, the

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games were won or lost just by a fraction of seconds or millimeters. There was a very narrow margin between the winner and loser. Role of psychologists and sports medical experts could, therefore, do wonders in such a situation. A good psychologist working with a medical expert could, in fact, influence, to a large extent, the outcome of the game, as well as the performance of sportspersons. The Committee noticed that the sports medicine was also not being given any priority in India. The Committee emphasized that due attention and priority must be given to these disciplines by all concerned. The Committee recommended that the services of good sports physiologists, psychologists and sports medical experts be made available to our players all the times at all the centres.

8.551 Advance in technology had come into each and every sphere and sports was no exception to this. We need to accept sports as a science. Sports science system in the country needed to be developed through a well-defined network from the national to the State, District and Panchayat levels where every youth including the sportspersons could be benefited. To achieve this target, a National Sports Science Institute having State, District and Panchayat level units needed to be established for necessary research, education and awareness generation about sports science across the country. Scheme for Anti-Doping

8.552 The Committee found that the pace of work at the Dope Control Centre was slow that needs to be expedited.

8.553 What surprised the Committee most was that nobody seemed to take the responsibility for our sportspersons testing positive for drugs. The Ministry and the SAI argue that it was basically not their duty/responsibility to get the athletes dope tested because they were under the control of IOA and various sports federations. Federations had ready excuse about the high cost of these tests and the lack of latest sophisticated facilities for this purpose in the country. Thus, at the end of the day, nobody was ready to own the responsibility for the bad name that such incidents bring to the nation. The Committee at the same time wished to appreciate the efforts of the IOA in getting some of our sportspersons cleared after they tested positive.

8.554 The Committee felt extremely unhappy about the continuing indifference shown by all sports bodies – Ministry, SAI, IOA, Federations to such a serious malaise. Involving many agencies in this, the Committee felt, had only complicated the matter. They appeared to be passing the buck to each other with no serious efforts being made by any of them to clean the mess that plagued our sports.

8.555 The Committee recommended to augment the testing facilities and adopting foolproof procedure for dope testing. We should evolve a mechanism with least possibility of tempering with the samples. The entire procedure should be strictly as per the norms laid by WADA and the punishments had to be as per the World Anti-Doping Code. The Ministry should make efforts for employing experts in the area for making the test results authentic.

8.556 The Committee also emphasized an urgent need for educating our athletes, coaches and other supporting personnel about the harmful effects of doping on their health as well as to the prestige of the nation.

Role of Media

8.557 The Committee felt that there was a need to increase the equipments and other facilities available with Doordarshan and AIR so that they did not feel handicapped in covering major sports events. With so many private TV channels around, it was necessary to inject more professionalism in the quality of live coverage and commentaries on Doordarshan. There was also a need for calling eminent sportspersons in programmes on fitness, yoga, sports and games. T.V. channels might also play an effective role in projecting the techniques and style of eminent sportspersons by showing them in slow motion on the national hook-up.

Putting Sports in Concurrent List

8.558 The Committee appreciated the limitations of Central Government in fixing accountability amongst multiple agencies in the backdrop of present constitutional arrangements regarding division of subjects under different lists. There was hardly any law or regulation defining the roles of such agencies and as such there was a lot of duplication of efforts. Sports being in state list, the Central Government lacked legislative powers required for strict enforcement of Government guidelines.

8.559 Besides, the Committee during its deliberations with some State governments found that sports hardly was a priority for them mainly due to the severe resource crunch with them. In some of the States (like Gujarat and Karnataka),

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resources spared for sports were not increasing or were going down over the years. In such a situation, Centre’s role and contribution had to increase manifold in promoting sports at national level.

8.560 The Committee also noted that while ‘Sports’ figure in the ‘State List’ of the Constitution, ‘Education’ figured in the ‘Concurrent List’. Both the activities viz Education and Sports were inter-related; in fact they were two facets of the same coin. The Committee while underlining the need for bringing sports under the ‘Concurrent List’ wished to emphasise that it should be done only with the consent of the States. While Sports in the country could be developed in an effective and coordinated manner only with Center and States as equal partners.

8.561 The Committee was informed that legislation for including ‘Sports’ in the Concurrent List was introduced in the Rajya Sabha in 1988, which could not be discussed in the Parliament. The Committee was informed that in 1996 a meeting of representatives of all political parties to discuss the subject remained inconclusive. Again in 2005, the matter was placed before the conference of State Sports Ministers. Many of the participating representatives of the State Governments reported that their Governments had not firmed up their views on the subject. Written communication regarding views of some State Governments had been received while communication from some State Governments was still awaited. The Committee recommended that the views of the State Governments might be once again taken before taking a decision in this regard.

8.562 In view of the greater responsibility of the Union for encouraging sports, the Committee recommended that Union had to play a pro-active role with regard to bringing sports under the Concurrent list. States’ fears in this regard would have to be removed to convince them about the utility of such a move by citing the example of education. It was only after education was brought to the Concurrent List, popular schemes like SSA and MDM could be sponsored by the Union at all India level. All the States were being benefited immensely by these schemes. A legislation might also be enacted to provide for an effective coordinating mechanism in the sports arena without impairing the autonomy of various agencies. Such legislations had greatly improved the sports scenario in countries like USA, Germany, Thailand, Sri Lanka and China.

Commonwealth Games 2010

8.563 The Committee noted that large number of bodies/committees had been entrusted with the responsibility of preparation and conduct of the Commonwealth Games, 2010. The Committee apprehended that multiplicity of authority for organizing the Games could make proper coordination and supervision very difficult. Lack of mutual coordination, among various authorities might delay the projects. The Committee was concerned about timely execution and completion of various projects for Games. The Committee, therefore, recommended that all these agencies should work as a team dedicated to ensure early and smooth completion of all the works in a time-bound manner. It was equally important to identify the bottlenecks in the execution of these projects and ensure fast track clearances from different bodies. Monitoring and supervision also needed to be foolproof and effective.

8.564 As regards the private participation, the Committee, as a note of caution liked to point out about the profit motive behind investment by them particularly in developing residential units. While forging partnership with them in this regard, this aspect needed to be kept in mind especially in view of the fact that these residential facilities might be required for such international sporting events like Asian Games, etc. for which India was reported to have been aspiring.

8.565 The Committee noted that the completion dates of the projects had been kept very close to the Games. Based on our experience of civil constructions generally being delayed, the Committee would like the agencies executing various projects to work with utmost dedication and commitment to complete the job even before the final schedule. We should take a cue from Delhi Metro in this regard.

8.566 As regard the utilisation of sports infrastructure after the Games, the Committee felt that it would have to be ensured well before the Games were over. Our experience after the Asian Games in 1982 had shown that the infrastructure created then had remained unutilized/underutilised for a very long time. For avoiding this, the Committee liked to emphasize the need for having a prospective plan for this purpose ready to be implemented after the Games.

8.567 The Committee expressed its concern about the manner in which the residential units would be untilised that were proposed to be constructed through private participation. The Committee liked to emphasize that a mutually agreed mechanism be devised to keep these under government control even after the Games were over.

8.568 The Committee wished to emphasise that the entire amount projected for the Games should not be spent as capital expenditure only; some proportion of it must be allocated for sportspersons and coaches also in the form of incentives and other assistance to them. This was more necessary in the face of the fact that if their moral was down, their performance

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would be affected adversely. 8.569 Training for sportspersons was another important component for such international events. Since most of our stadia and other venues in the meantime would either be under upgradation/construction, this might pose a problem regarding regular training of our sportspersons. Our new infrastructure for Commonwealth Games would be ready towards the end of 2009 or beginning of 2010. And till that time our sportspersons would have no option but to depend upon the existing old infrastructure and facilities. Expecting medal-winning performances from our sportspersons trained on such infrastructure as compared to those from Canada, UK, Australia, etc. would, in fact, be a wishful idea. The Committee, therefore, emphasized that the up-gradation as well as creation of infrastructure need to be completed at least a year ahead of the Games so that our sportspersons could get the benefit of such improved infrastructure till we get the Commonwealth Games infrastructure. Part - II Problems Relating to Regional and Other Centres of Sports Authority of India Dr. Shyama Prasad Mookherjee Swimming Pool Complex

8.570 Following issues/problems were noticed during the visit of the Committee to the swimming pool: - - The air-conditioning plant installed at the pool was not effective as it was old. - Recycling of water was done to meet the shortage of water; heating facility was not working. - Lack of proper coordination amongst various agencies like CPWD and NDMC hampered the upkeep of the pool and its complex. - An Engineering Cell of SAI to monitor the construction/maintenance works at the complex, needed to be put in place. - Stagnant water led to breeding of the mosquitoes in and around the pool. The pool design needed to be modified. - During winter one of the pools was closed, which affected adversely the swimming practice. - Shortage of swimming coaches was the biggest problem. - There was no provision of a lift in the building. - There were no proper lights in the female change room. - The present dormitory accommodation available was not only insufficient but also very congested. A separate hostel as well as a separate swimming pool needed to be constructed to meet the requirement of the forthcoming Commonwealth Games. - Efforts should be made to tap swimming potential from the coastal belts of the country. Initiative to train the swimmers to compete in all the 96 events be made by the National Swimming Federation, as SAI had nothing to do with this. It only provided the requisite infrastructure. - The Committee was informed that a proposal for Swimming Academy for identifying the swimming talents from various far-flung areas was pending with the Ministry of Youth Affairs and Sports. The Committee recommended that the proposal be expedited in view of the forthcoming Commonwealth Games.

8.571 The Committee liked to have point-wise response from the Ministry of Youth Affairs and Sports on the points made above.

8.572 The Committee took special interest in the infrastructural facilities available there and particularly in the newly developed Dope Centre. The Committee however, liked the Government to improve the level of maintenance and over all cleanliness in laboratories at the Dope center so that not only the testing or experiments gave better results but the technicians also got more hygienic working conditions. The Committee felt that the Dope Centre at Jawaharlal Nehru stadium being the only one in the country should have more sports scientists and experts in the laboratories. This would help in improving the research standards of the Dope Centres. There was also need to provide more physiotherapists/doctors in human performance lab as well as in the medical center.

8.573 Tenure of the Managing Committee of National Sports Development Fund (NSDF) had expired and new members had not been appointed so far. The delay in constitution of the Committee was adversely affecting the decision making process for utilisation as well as resource generation of this corpus. The Committee liked to be apprised about the status of constitution of the same.

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SAI, Western Regional Centre, Gandhinagar

8.574 The Committee deprecated the practice of lingering important proposals for unduly longer time mainly at the Headquarter. Proposal for replacement of synthetic athletic track received in the last year of the 9th Plan remained on paper till 2005-06 (fourth year of the 10th Plan) for want of funds. Fate of 25 year old swimming pool also seemed to be equally pathetic. The kind of feedback received left no doubt.

8.575 The Committee recommended that immediate remedial steps be taken to renovate, upgrade and make the swimming pool functional. It also liked to be apprised about the status of laying the athletics synthetic track in the Center.

8.576 The Committee was informed that SIU had assessed the strength of staff at the center as 136 instead of the original sanctioned strength of 260. Existing strength at the time of the Committee’s visit was 175. It meant the center had surplus staff. But the Committee felt that the assessment by the SIU was not at all based on objective/expert advice.

8.577 The Committee was also given to understand that there was a demand for Lab Technician, Data Entry Operator and Hindi Translator at the Center. The Committee was, however, surprised to note that no progress seemed to have been made. Reason being the ban on direct recruitment and the post of Lab Technician falling under this category. Posting of Data Entry Operator was being delayed as it was to be considered under the over all assessment. The Committee was not happy with the lack of initiative on the part of SAI. Ban on recruitment of technical post was no longer there. The Committee therefore, emphasized that filling up of these posts might be pursued without any further delay.

8.578 The Committee was also constrained to note that no regular Medical Officer was deployed at SAI Western Region for quite a few years. The Committee had been informed that in 1991-92, the post of Medical Officer was merged with the cadre of Junior Scientific Officer and thus no post of Medical Officer was in existence in SAI as per the Recruitment Rules of SAI. The Committee was not convinced by the assurance regarding action being initiated to post a Medical Officer at Gandhinagar. The Committee felt that posting of Medical Officers needed to be made mandatory at all centres for proper care of our sportspersons.

8.579 During discussion with State Sports officials, a number of demands were made by Sports Authority of Gujarat: - - Discontinued regular diploma courses in Western

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